DEC Rohingya Refugee Crisis Response I 3 CONTENTS
METASYNTHESIS DEC ROHINGYA REFUGEE LESSONS LEARNED REPORT CRISIS RESPONSE JUNE 2020 Charlotte Heward Michael Carrier GROUPE URD
Founded in 1993, Groupe URD is an independent think tank that specialises in analysing practices and developing policies for the humanitarian sector. Our multi-disciplinary expertise, based on continual fieldvisits to crisis and post-crisis contexts, provides us with insight into the functioning of the sector as a whole. We believe in sharing knowledge and collective learning, and we help aid actors to improve the quality oftheir programmes through evaluation, strategic and organisational support, methodological development,research and training. AUTHORS
Charlotte Heward is the author of the Bangladesh country case study in the 2018 edition of the State of the Humanitarian System published by ALNAP. She visited Cox’s Bazar area in January 2018 to assess the performance of the humanitarian sector in this massive refugee crisis. She has 15 years’ experience in the development and humanitarian sector. She joined Groupe URD in 2014, where she works as a Researcher, Evaluator and Partnership and Programme Manager. She has a good understanding of the Rohingya refugee crisis in Bangladesh, and previously worked in Myanmar, in the Rakhine area, and thus is familiar with the political and humanitarian situation in both countries.
Michael Carrier is the author of the Quality & Accountability COMPASS Handbook which aims to help implement the Core Humanitarian Standard (CHS) in the field. He has 19 years’ experience in the humanitarian and development sector, and has been a Researcher, Evaluator and Trainer at Groupe URD since 2017. As Quality Advisor for Groupe URD, he works on the practical application of the CHS quality criteria through training sessions, evaluation and organisational support. ACKNOWLEDGEMENTS
The consultants would like to thank all those involved in the survey and interviews for their contributions. DISCLAIMER
The opinions expressed in this report are those of the authors and do not necessarily reflect those of the Disasters Emergency Committee.
This report is a lessons-learned document, not an evaluation, it does not offer an external and objective view of a situation, but rather tries to highlight the opinions, views and recommendations that have emerged from the various stakeholders’ experience in the response to the Rohingya refugee crisis.
Limitation: This is a desk-based review only, no field visits were organised during this review. The voices of the refugees themselves were not heard during this exercise, nor the national authorities of Bangladesh, only through secondary data collected from other sources.
Note: The quotes in the text, when not linked to a reference or author, are either drawn from the interviews with key informants, from the survey online, or from DEC Member Charities reporting documents review.
Graphic designer : Caroll Richon I Metasynthesis DEC Rohingya Refugee Crisis Response I 3 CONTENTS
EXECUTIVE SUMMARY...... 04 KEY RECOMMENDATIONS...... 08 THE ROHINGYA REFUGEE CRISIS RESPONSE...... 10 The DEC appeal...... 12 What the DEC funded...... 13 LESSONS LEARNED...... 16 Effects...... 17 Stakeholders...... 23 Implementation...... 28 CONCLUSION...... 32 Summary - CHS health check...... 33 Recommendations...... 36 Three years later, what is the situation of the Rohingyas?...... 42
List of acronyms...... 44 Appendix 1: Analysis matrix...... 45 Appendix 2: Strengths and challenges / weaknesses...... 47 Appendix 3: Recommendations...... 56 Appendix 4: References...... 62 EXECUTIVE SUMMARY I Metasynthesis DEC Rohingya Refugee Crisis Response I 05
ON 4TH OCTOBER 2017, the DEC launched an appeal for funds that proved to be successful, with over £30 million raised and life-saving assistance provided to at least 351,000 people during the first phase, while during the second phase it reached at least 309,000 people. This Muslim community, considered to be one of the most persecuted in the world, has settled in southern Bangladesh’s Cox’s Bazar region. There are now about 860,243 refugees according to the UNHCR and the Government of Bangladesh, while an estimated 600,000 Rohingya remain in Myanmar. The living conditions of approximately 444,000 people from host communities in the Cox’s Bazar region have subsequently deteriorated and also require assistance.
With the collected funds, the DEC funds were also used to effective innovations were put in DEC response in Bangladesh provide protection services to place during this crisis, notably was implemented by 13 UK vulnerable women, children and in WASH, infrastructure work organisations during two older people, notably via the and livelihood activities. years, in two phases, the first provision of safe spaces where phase lasting six months, they had access to a range of However, the scale of the and the second lasting 18 services. refugee response was so months. Despite a very overwhelming and the rapid mobilisation from the Initial services did not meet constraints so challenging humanitarian sector, the international quality standards that important gaps remain, challenge was unprecedented in humanitarian aid, notably especially in providing services for the different stakeholders in WASH where the distance allowing the Rohingyas to involved, DEC Member Charities between latrines and water consider building a future for included. points was frequently too themselves and their families. short, and where the number Crucial gaps in recognising DURING THE FIRST PHASE, of latrines was not sufficient and treating trauma have been the needs were huge in terms of for the population according mentioned. Mental health and basic services, such as shelter, to SPHERE standards. The psychosocial services remain a food and drinking water. The majority of refugees were significant gap in the response. Government of Bangladesh also dependent on food assistance. Several DEC Member Charities needed a great deal of support The need for more diverse reported not being able to get in developing infrastructure produce in food baskets was approval for implementing to create new sites that could mentioned, general rations were mental health and psychosocial safely accommodate refugees. not large enough for some large services. With time, more of The focus was on supplying food households and the frequency these activities were authorised and providing clean drinking of distributions was not regular but not up to a sufficient scale water, installing sanitation enough. when compared to the needs of facilities and improving living the refugees. conditions by providing During the second phase, materials to build or improve DEC funded organisations A STRONG IMPACT on shelters and also distributing were able to adopt integrative host communities. Local basic household goods, as well approaches. These still inhabitants of Cox’s Bazar as making sure health services aimed to save lives, but also district, in Teknaf and Ukhia were available through the integrated other aspects such area were welcoming to the implementation of clinics and a as protection, preparedness and Rohingya refugees when they field hospital. environmental considerations. fled Myanmar. Progressively It should be noted that some tensions raised between the 06 I Executive summary I
newly arrived refugees and GOVERNMENT RESPONDED many other protection issues the host communities, as the RAPIDLY upon the arrival of the had to be dealt with during pressure on land for cultivation Rohingya refugees, allocating this response. DEC Member and on natural resources has land in the Cox’s Bazar area Charities, along with the other grown which creates concern and providing assistance via stakeholders, contributed about deforestation. In addition, several different government to reducing the insecurity local market prices have departments. The Ministry of of individuals, groups and increased while salaries and Disaster Management and communities at risk. In 2018, wages have decreased as the Relief and its Office of the activities started focusing more refugee population agrees to Refugee Relief and Repatriation on protection and multi-sector work for lower prices than the Commissioner were assigned to preparedness and response Bangladeshi communities. oversee the refugee response. for the monsoon and cyclone DEC Member Charities have However, the Government of season. The Rohingya refugees included host communities in Bangladesh doesn’t consider received support through their programming in an effort a future for the refugees in the transitional interventions, to support all those affected country and strongly rejects the encouraging a shift away by the disaster; to strengthen possibility of local integration. from meeting immediate resilience and social cohesion The lack of durable solutions for humanitarian needs toward and dissipate possible tensions. the Rohingyas remains a major solutions-oriented responses. concern. COMPLEX COORDINATION It seems the protection lens PROCESSES in this emergency As very often is the case in could have been used much response, which was led and migratory crises, there are earlier in the response; however, coordinated by the Government crucial political issues to be DEC Member Charities were of Bangladesh, who had dealt with and the humanitarian faced with numerous delays and established a National Strategy sector cannot ignore them. obstructions as the Government on Myanmar Refugees and Bangladesh has been pushing of Bangladesh was reluctant to Undocumented Myanmar strongly for a rapid repatriation deliver authorisations related Nationals in 2013. UN agencies of the Rohingya population. to this type of activity. They and international NGOs played It has therefore refused to had to shift to other activities, a central role in coordination, acknowledge their refugee sometimes mainstreaming in spite of confusion about status, and has selected protection through other UN leadership, which was humanitarian projects and sectors, which took more time split between UNHCR and specific activities that were not to design. IOM, and made accountability likely to prolong the situation. for operations difficult. In Restrictions were imposed on Protection programmes are addition, national partners and materials that could be used likely to require specialized and local NGOs were only given for construction, and also on skilled human resources, which a marginal role despite the activities that sustain livelihoods can be difficult to find, especially fact that they would have had (Cash transfers, Income in a country like Bangladesh better understanding and a Generating Activities and “soft” where organisations are more more direct relationship with activities such as Education, qualified in managing natural the local authorities. Although SGBV prevention, Mental disasters than in managing several key informants in this Health Support, Protection, and complex emergencies such as a review mentioned they would trainings/sensitization). refugee crisis. have appreciated stronger NATIONAL NGOS PLAYED AN coordination among DEC PROTECTION. In addition to the crucial role of the United IMPORTANT ROLE IN THE Member Charities, it seems this RESPONSE. If many of them would have added an additional Nations in advocating for a safe return of the Rohingyas to lacked experience in refugee layer of coordination to existing response and in managing large structures, and would possibly their country, for their rights, such as the recognition of scale emergencies, they brought have led to more confusion and relevant experience working more time spent in meetings. their refugee status or at least the right for them to have an with local communities on THE BANGLADESHI official identification document, social and economic issues and I Metasynthesis DEC Rohingya Refugee Crisis Response I 07
disasters and were among the first to help meet the immediate needs of refugees. The role played by national NGOs in the response was also crucial in the way they were able to influence the local government notably through their knowledge of political dynamics.
THE INVOLVEMENT OF THE ROHINGYA POPULATION in the response took time. Most of them did not receive proper information about decisions being made regarding the response to their needs, about their future or even about when the next ration supply would be distributed. The refugee population was not systematically involved in needs assessments and in programming activities.
All DEC Member Charities put feedbacks and complaints system in place with various methods; some channels proved more effective than others. The level of education is low among the Rohingya population, due to years of living in restricted and Mohammed Rafique, 30, and his wife Sanura Begum, 27, with their 10-day- controlled areas in Myanmar, old baby at the Red Cross field hospital, Kutuapalong/Balukhali camp, with very limited access to Cox’s Bazar. schools. The refugees therefore have little knowledge and authorizations to deliver aid and With a crisis that will last well information about their rights due to coordination issues, that beyond the maximum two- and entitlements, all the more hindered the efficient delivery year DEC funding duration, so for women who have had of aid. questions have been raised on even less access to information how DEC related projects could ON THE WHOLE, THIS and education. Literacy is very withdraw responsibly. As there INTERVENTION was very low, so the effectiveness of is no perspective of a rapid complex, with people and approaches such as complaints improvement for the Rohingya organisations facing huge boxes is unclear. Direct population, and despite the operational and institutional feedback / complaint was decrease in available funds, challenges. Under these favoured by beneficiaries rather many DEC Member Charities conditions, the implementation than through a hotline or a box. have continued to provide and contribution of DEC assistance even after the DEC A HEAVY BUREAUCRATIC Member Charities to the funding stopped, all the more so BURDEN ON HUMANITARIAN improvement of living conditions as the Covid-19 pandemic is a STAKEHOLDERS. NGOs faced relied on their capacity to new threat to life in the refugee a number of challenges in adapt to changes and respond camps of Bangladesh. terms of obtaining government effectively to uncertainties. KEY RECOMMENDATIONS I Metasynthesis DEC Rohingya Refugee Crisis Response I 09
ASSESS the type of INCLUDE protection CONNECT with crisis to anticipate if it will activities, especially Nexus reflexions applied be a long-term crisis, and concerning gender- to forced displacement, adapt accordingly (e.g based violence, as in particular the EU early involvement of local soon as the project is communication “Live capacities). launched (lighting in in Dignity”, in order camps, locks to latrines) to take advantage of with the involvement the involvement of USE PHASE 1 to of the communities in development actors (e.g intervene rapidly while order to understand their DEVCO, World Bank, assessing existing needs, practices and uses. etc.) in long lasting resources and context of refugee situations intervention to develop
tailored activities in ADAPT complaints Phase 2. mechanisms to local culture, consider SPECIFIC TO participatory approaches DEC FUNDING PROMOTE multi- (consultation, iterative sector / integrated feedbacks loops, etc.) approaches within one and foster discussion REQUEST an exit or organisation or between within members scaling down strategy at different implementers about complaints the latest at the end of (e.g Integrated health, mechanisms adapted Phase 1 / beginning of nutrition and WASH to various contexts and phase 2 programming). implement them through participatory approaches. DEVELOP lessons TAKE ADVANTAGE learned from this of the strong skills In a complex intervention on how to Bangladeshi organisations political environment operate in extremely have in DRR / of intervention, cramped camp settings preparedness activities (or PRIORITIZE both the other local skills in other emergency response contexts if relevant), while and advocacy, or at KEEP current reinforcing the national least joint positioning, flexibility and proactive capacities in managing with the government DEC management. complex emergencies to streamline and involving multiple sectors, harmonise the potential including quality and changing shifts in policy accountability methods. and regulations. THE ROHINGYA REFUGEE CRISIS RESPONSE I Metasynthesis DEC Rohingya Refugee Crisis Response I 11
NEARLY THREE YEARS AGO, the Rohingya were forced to leave their homes in Rakhine state, Myanmar. This Muslim community, considered to be one of the most persecuted in the world, has settled in southern Bangladesh’s Cox’s Bazar region. Though there had already been several population influxes - in 1978, 1992, 2012 and 2016 - the largest wave took place from August 2017. There are now about 860,243 refugees according to the UNHCR and the Government of Bangladesh, while an estimated 600,000 Rohingya remain in Myanmar. The living conditions of approximately 444,000 people from host communities in the Cox’s Bazar region have subsequently deteriorated and also require assistance.
The Rohingya people fled immense that the camps were Bangladesh in large numbers persecution and massacres by quickly saturated. This led to since the beginning of the crisis. the Myanmar State and army, the creation of informal camps1 But the exceptional intensity which intensified after years of that were exposed to weather- of the crisis has put their tension. The stories collected related hazards, but also to a operations and coordination to evoke burnt villages, families certain lack of organization and the test. Indeed, studies have massacred with machetes, coordination of the humanitarian revealed shortcomings in terms children drowned in front of their response. of aid quality and accountability, parents, girls and women raped. especially during the first Organizations such as Amnesty Moreover, the Bangladeshi months. Security problems International and Human Rights government does not wish to within the camps themselves Watch speak of apartheid see this situation continue and have been highlighted, notably and crimes against humanity, refuses to consider these people sexual and gender-based including murder, torture, forced as refugees, thus maintaining a violence. evictions, techniques for starving very precarious situation. They people and the use of landmines. have therefore been denied their More worryingly, there are In January, the International rights for a long time, without frequent cyclones in the region Court of Justice called for access to any legal income- and the camps are located measures to prevent a genocide generating activity, to health in high-risk areas that can of the Rohingyas remaining in care, or even to telephone be flooded or affected by Myanmar. cards (it is illegal for refugees mudslides every monsoon; to have mobile phones and sim these parameters were relatively It is for these reasons that cards and the Government of neglected due to the urgency since 2017 the world has been Bangladesh policy turned off of the response until late in facing one of the biggest mobile coverage in the camps the monsoon in 2018. In 2019 humanitarian crises in decades. for 2G and 3G coverage). In May and 2020 though, considerable The unprecedented number of 2020 the first Rohingyas were stabilization work has been done Rohingyas fleeing terror have conducted to the submersible in the camps. made conditions complicated island of Bhashan Char, which for international aid actors, the some Human Rights groups In addition, the camps have Government of Bangladesh have described as a «new expanded into natural reserves, and host populations alike. The concentration camp». which has considerably affected host populations were very natural resources and local welcoming, but needs were so International aid organizations wildlife. Among other things, this have been present in situation raises the question of
1 - Camps were informal but as of now they are formalised and all have site management structures (Government of Bangladesh through Camp in Charge and INGO site management co–leads) 12 I The Rohingya Refugee Crisis Response I
how to take the environmental people per square kilometre, protective equipment, testing, factor into account in physical distancing is quarantine and respiratory humanitarian crisis situations. inconceivable. Nevertheless, assistance facilities within the important health responses camps themselves. So far, only The latest threat comes from have been put in place with a limited number of cases have COVID-19. In overcrowded handwashing stations, provision been reported in the region, but camps, with almost 40,000 of water and soap, personal the future remains uncertain. THE DEC APPEAL When major disasters hit countries without the capacity to respond, the DEC brings together 14 leading United-Kingdom aid charities2 to raise funds quickly and efficiently, enabling their member charities to rapidly scale up their operations on the ground.
The DEC’s work is governed by strive for the highest standards in fleeing their homes in Myanmar a commitment to best practice programme quality, transparency who are in urgent need of shelter, and being accountable to both and accountability, particularly medical care, water and food. In their donors and the people to the people affected by crises.” recent weeks, more than half a affected by disasters. The DEC This synthesis was done by million people, mostly Rohingya conducts and publishes regular Groupe URD from January to women and children, have sought independent appeal evaluations, June 2020. It is based on a review refuge in Bangladesh from to check their Member Charities’ of key documents, feedback violence in Myanmar’s Rakhine disaster responses are really from an online questionnaire,15 state. The thirteen DEC member helping the communities that individual interviews, and an charities have come together to need them most, and their online workshop (to be organised call for funds to respond to the annual reports provide details in September 2020). severe humanitarian needs of on the DEC’s operational and those affected. Money raised financial performance every year. On 4th October 2017, the DEC will support their efforts to reach launched an appeal for funds people fleeing Myanmar as well This metasynthesis report is part that proved to be successful, as their host communities in of the lesson learning that DEC with over £30 million raised and Bangladesh.3” is committed to implementing as life-saving assistance provided a way of continuously improving to at least 351,000 people during With the collected funds, the how DEC Member Charities, and the first phase, while during the DEC response in Bangladesh the wider humanitarian sector, second phase it reached at least was implemented by 13 UK provide assistance to crisis- 309,000 people: “Leading UK aid organisations during two years, affected populations. One of agencies today announced a joint in two phases, the first phase DEC’s commitments in their 2019 fundraising appeal to help the lasting six months, and the – 2024 strategy is “to continue to hundreds of thousands of people second lasting 18 months.
2 - 13 organisations at the time of the Rohingya appeal 3 - https://www.dec.org.uk/press-release/disasters-emergency-committee-dec-launches-emergency-appeal-for-people-fleeing-myanmar
DEC MEMBER CHARITIES I Metasynthesis DEC Rohingya Refugee Crisis Response I 13
WHAT THE DEC FUNDED
Phase one provision of safe spaces where installing more deep tube wells they had access to a range of to provide clean water and In the first phase of the services. installing solar lighting to help intervention (six months) the people feel safer at night. focus was on supplying food and As the monsoon season loomed providing clean drinking water, in 2018, DEC Member Charities installing sanitation facilities helped people to prepare and improving living conditions by strengthening shelters, Phase two by providing materials to build reinforcing the hilly landscape to During the second phase of the or improve shelters and also prevent mudslides and meeting intervention (eighteen months), distributing basic household ongoing food needs. A latrine DEC Member Charities were goods, as well as making sure desludging programme was also able to reinforce their activities health services were available carried out to stop full latrines and to fine tune them to become through the implementation of from overflowing due to the more relevant to the population’s clinics and a field hospital. rains and prevent outbreaks of needs. waterborne diseases. A faecal DEC funds were also used to sludge management centre was Overall, this second phase provide protection services to set up by one DEC member, focused primarily on improving vulnerable women, children and staffed by refugee volunteers. security in the camps and older people, notably via the Other activities included protecting the most vulnerable
Rom Bahar’s family arrived in Bangladesh on 1 September 2017 after a 24-hour journey. “The military were burning our houses and shooting us and chasing us.” They now live in Moinerghona camp.
The family has received clothes, mats, blankets, jerrycans and soap from Concern. They arrived with nothing. These items have been “a great help to us”. She is happy with the help she has received but needs more things like solar panels, light, and firewood as there is not much to cook with. She wants her children to be educated so they can become teachers or doctors. She will only go back to Myanmar if they are recognised as Rohingya. They will stay here if they need to because in Myanmar there is no freedom of movement, and no access to education.
Rom Bahar, 27, and her son, 5, received jerrycans and blankets from Concern. 14 I The Rohingya Refugee Crisis Response I
Another important focus during the second phase was disaster risk reduction and preparedness. DEC Member Charities worked with communities to prevent monsoon, cyclone or landslides related risks by strengthening shelters, roads, stepped pathways, bridges, sewage systems and public infrastructures. Construction materials and shelter kits were also distributed. Two Union Disaster Committees were created to work on risk reduction action plans and some volunteers from the communities were Jalal sprays disinfectant to prevent the spread of Covid-19 in the Rohingya trained to facilitate sessions of refugee camp as part of Oxfam’s response, Cox’s Bazar, Bangladesh. DRR awareness and life-saving in the camps. Large-scale groups. The initial focus was committees. Moreover, training awareness campaigns were on awareness and reduction of was provided in positive parenting conducted on environmental gender-based violence against skills, and on child rights, and protection. Cleaning campaigns women and girls with gender- nutrition and health interventions were also implemented, and sea segregated latrines and bathing were provided to reduce morbidity safety and tree plantation kits spaces, and the creation of and mortality due to malnutrition. were distributed. women-friendly spaces, where DEC Member Charities also they were given access to Similarly, programs to reduce created cooking facilities and places where they can talk and mortality among the elderly community kitchens, which be listened to; these places have been implemented, in reduce the risk of fire in the can also provide appropriate particular by raising awareness shelters, often small and psychological support, of contagious diseases and their overpopulated tents, and also contraception or menstruation modes of transmission and by proposed alternative energy kits. DEC’s Member Charities developing specialized health sources for traditional cookers organized door-to-door services. such as rice husks, or even awareness campaigns, and Host communities were also alternative cooking devices such specialized committees to targeted by general protection as LPG cookers. sensitize women and youth as programs, such as psychological well as men. The second phase support or cash grants to WASH remained a major focus, provided the opportunity to do develop livelihoods activities. mostly through the maintenance more to promote dignity and and creation of tube wells, wellbeing for women and for Some activities from the latrines, and bathing facilities, refugee communities in general. first phase were continued including new gender-segregated and improved, such as food facilities. There were also hygiene Protection programs were also assistance with fresh food promotion activities in the form developed for children and young vouchers, alternative fuel for of awareness campaigns and people, including Unaccompanied cooking (such as rice husks), hygiene kit distributions. and Separated Children, in clothes or portable solar lamps. order to ensure their rights. They Various kits were distributed for The second phase was also an developed mechanisms and livelihoods rehabilitation, such as opportunity to develop social places to protect children in need gardening tool packs with cash cohesion in the camps by working like Child Friendly Spaces, lost grants, and business training was with local leaders and Majhis child and carer meeting points, or provided to both refugees and for religious celebrations and risk mapping for child protection host communities. meetings. I Metasynthesis DEC Rohingya Refugee Crisis Response I 15
CARE International Women Friendly Space, DEC-funded. Women come to this centre to receive psychosocial support, education support, referrals for treatment and referrals for follow-up treatment. LESSONS LEARNED I Metasynthesis DEC Rohingya Refugee Crisis Response I 17
WHAT WAS ACHIEVED? What worked well? What didn’t work so well? How to improve future interventions? EFFECTS
Despite a very rapid mobilisation from the humanitarian sector, the challenge was huge and 1. Word cloud unprecedented for the different related to «effects» stakeholders involved, DEC used by key Member Charities included. informants Before 25th August 2017, 303 000 Rohingya were already settled in Bangladesh, and by 15th February 2018, 671 000 further arrivals had been registered, most of them during the first three months after the violence in Myanmar sparked their exodus and an estimated 75%4 of these new arrivals took place in September.
This mass influx of people obviously also affected the 336 000 people who made up the host community in Cox’s Bazar. They were finally included in the 2018 Joint Response Plan5 after months of advocacy from donors and protection agencies as the Government of Bangladesh initially refused to consider their needs on the same level as those of the the Bangladeshi host community the intervention of other refugees. and on existing facilities and organisations, often international Nearly all those who arrived services in one of the poorest NGOs, to step-up and increase during the influx sought shelter areas of the country. the capacity to respond to this refugee crisis. The entire in and around the refugee Bangladesh is a country settlements of Kutupalong and humanitarian system had to prone to natural disasters and be set up; a lot of capacity Nayapara in Cox’s Bazar district. therefore has a strong capacity Some joined relatives who had development was necessary in dealing with that type of in order to have national staff arrived during previous waves. crisis, however, dealing with a The enormous scale of the influx with the necessary skills. This complex emergency such as development took place in all put immense pressure both on a refugee crisis necessitated
4 - https://unhcr.maps.arcgis.com/apps/Cascade/index.html?appid=5fdca0f47f1a46498002f39894fcd26f 5 - The host-communities in the area are very vulnerable, the present influx may have consequences on their livelihoods. Their needs are now integrated to the 2018 JRP, notably page 16 of the following document: https://reliefweb.int/sites/reliefweb.int/files/resources/ JRP%20for%20Rohingya%20Humanitarian%20Crisis%20-%20FOR%20DISTRIBUTION.PDF 18 I Lessons learned I
sectors, and notably in sectors between latrines and water Inequity was mentioned on that are not traditional in points was frequently too several occasions. Bangladesh, such as Protection short, and where the number and psychosocial services. of latrines was not sufficient for the population according to Shifting to integrative The large number of people SPHERE standards. to assist was overwhelming. approaches during the Although the funding was there, Many of the shelter conditions second phase the structural capacities to are still below the Sphere The DEC funded organisations implement the response were standards mostly because of were able to adopt integrative not always in place in a timely the lack of available space, but approaches after a few months. manner. It took time for the also because of the restrictions These still aimed to save lives, humanitarian stakeholders, imposed by the Government of but also integrated other including those already working Bangladesh, not allowing the use aspects such as protection, in the context, to switch from of more solid and sustainable preparedness and environmental a recovery to an emergency materials. considerations. It should be approach. The majority of refugees were noted that some effective dependent on food assistance. innovations were put in place The need for more diverse during this crisis. Provision of life-saving produce in food baskets was In sanitation assistance and basic mentioned, general rations were services during the first not large enough for some large Technical innovations were phase households and the frequency tested in response to the The needs were huge in terms of of distributions was not regular constraints posed by the basic services, such as shelter, enough. environment. food and drinking water. The The extremely high level of The construction of safe Government of Bangladesh also needs meant that organisations sanitation systems in refugee needed a great deal of support were unable to cover them in camps is a challenge in itself: in developing infrastructure all sectors, especially during poor infrastructure often means to create new sites that could the first months. The food human waste might be dumped safely accommodate refugees. security, nutrition and WASH in nearby fields or open pits, This included funding a road responses proved fairly contaminating already scarce to facilitate construction and satisfactory. However, some water supplies and becoming a refugee access, supporting important issues, which are not breeding ground for disease. This site planning, building latrines as visible, such as protection, time, a huge biological disposal and wells, improving the water psychological care and social site was created in a refugee and sanitation facilities and support, were not sufficiently camp, allowing for sewage distributing shelter materials. covered. As a result, people treatment locally, whereas other Initial services did not meet who arrived in the country refugee camps often require international quality standards traumatised by the violence the intervention of private in humanitarian aid, notably inflicted in Myanmar, the loss of companies to remove waste and in WASH where the distance family members, and exhausted dispose of it elsewhere (with the by a gruelling journey across the risks that this involves in terms The DEC project is border, remained at risk. of where it is disposed). one of the projects It seems that after a few months, In the same way, methods humanitarian assistance became of waste water treatment that started quickly, more organised. However, it was transitioned away from lime it helped people noted that not all camps benefit stabilisation to using an from the same standards. anaerobic digestor6, which to receive support
when it was the most 6 - The anaerobic digester was initially deployed at the start of 2019 by the IFRC as a pilot project, and is now considered to be something that could be mobilised as part of an needed. Emergency Response Unit in other responses. I Metasynthesis DEC Rohingya Refugee Crisis Response I 19
“ The initial investment is well worth it instance), when NGOs weren’t allowed to implement them as because the plant is cheap and easy to run standalone activities. and could last for 20 years – benefiting local The conservative nature of the communities when this emergency is over (…) Rohingya society, within the refugee population, but also We expect to replicate this model in within the host communities, required subtlety and specific future crises5. ” approaches to be able to reach out and include women’s decreases the quantity of support and guidance. groups. For instance, some organic solids in sludge, making An organisation helped host NGOs hired female architects it easier to dispose due to to help design the latrine and the reduced volume, which is community beneficiaries, mostly women, to open a bathing facilities along with considered a better long-term bank account, as a way of women and girls. solution, and has a reduced receiving assistance money in a impact on the local environment A DEC Member Charities transparent and secure way, but than when treating sludge response which focused also as a capacity building and through lime stabilisation. on improving the camp empowerment tool. infrastructure also integrated a In infrastructure As part of site improvement protection lens. The instalment of solar street lamps, provided Integrated Site Improvement activities a DEC Member Charity a significant improvement Approach, which used natural, recruited volunteers from to camp conditions but also locally available materials to among the Rohingya refugees increased the security and improve site conditions (e.g. to undertake Infrastructure safety of vulnerable groups, step formation, clearing of improvement activities across mainly women and girls. This pathways, strengthening of the camps. The volunteers were activity was completed through slopes, etc.) while keeping a given a stipend, which not only a community-based approach protection and inclusion lens. provided an important source engaging a variety of groups Based on community maps, a of income but also enabled from the community including DEC Member Charity integrated them to take ownership over women, men, older women and various GIS and scientific the improvements to their home men, people with disabilities, methods to create an online and surrounding environment. girls, boys and children to platform which records all site understand their preferences improvement work undertaken “Women feel proud in terms of locations. Feedback within the camps. Much of from community members has the improvement work was and confident to highlighted that the street lights undertaken by the refugees have significantly reduced themselves through cash for have their own bank protection risks for women and work. The GIS resource was account” girls, mainly around accessing used to monitor and track WASH facilities during night maintenance work beyond the time. The lights were added project time period. And other integrative to GIS maps to flag issues and In livelihoods approaches track future maintenance of the lights. Because of the restrictions Communicating information imposed by the Government of about Disaster Risk Reduction, Sexual and Gender-Based Bangladesh in terms of Income Violence prevention, and other Unmet needs Generating Activities, some sensitization messages often NGOs encouraged the refugees The scale of the refugee took place during distributions for their capacity building, response was so overwhelming or during other activities without providing material and the constraints so (sewing or cooking classes for support but with motivational challenging that important gaps 20 I Lessons learned I
remain, especially in providing “One of the MHPSS activities were services allowing the Rohingyas authorised but not up to a to consider building a future for substantial unmet sufficient scale when compared themselves and their families. needs is access to the huge needs of the refugees. As the Government of to quality Gender Bangladesh always asserted that the refugee presence Based Violence was to remain brief, education A strong impact on host prevention services communities programmes were considered unnecessary and prohibited. for survivors, with Local inhabitants of Cox’s Bazar Since May 2020, however, after survivor-centred district, in Teknaf and Ukhia months of advocacy from the area have been welcoming to UN, Human rights organisations case management the Rohingya refugees when and the refugees themselves; and psychosocial they fled Myanmar to sought Bangladeshi authorities have shelter in Bangladesh. This finally released their restrictions support services.” area is one of the country’s on providing education for most vulnerable districts, and Rohingya children. Children the poverty rate is well above until the age of thirteen are try and compensate the gaps Bangladesh’s national average7. allowed to follow the Myanmar created by these restrictions. In Progressively tensions have curricula. Until then, only very Children and Women Friendly raised between the newly basic schooling has been Spaces (CWFS) for instance, arrived refugees and the host provided by aid organisations children were able to receive communities, as the pressure to small children; and Rohingya informal learning while women on land for cultivation and on themselves have organised were provided awareness raising resource such as firewood informal classes, sometimes sessions on family planning, or bamboo8 or the water taught by people who used to be child marriage, education and table reserves has grown teachers in Myanmar, in basic domestic violence. which creates concern about skills such as mathematics, Crucial gaps in recognising sciences and English. and treating trauma have been We met with local However, DEC Member Charities mentioned. Mental health engaged in various activities to and psychosocial services authorities and went (MHPSS) remain a significant gap in the response, given the over humanitarian traumatic experiences faced by principles that Children have been the refugees as they fled their using the Children homes on the one hand and govern our way the uncertainty regarding their and Women Friendly future on the other hand, living in of working and Spaces to engage in overcrowded camps, sometimes could convince in unsafe conditions, with limited various entertaining access to basic services, and them to let us educational low hopes in improving their implement following livelihoods. activities like impartiality, Several DEC Member Charities drawing, storytelling, reported not being able to get neutrality and physical exercise, approval for implementing independence Mental health and psychosocial and playing. services. With time, more principles
7 - https://www.unocha.org/sites/unocha/files/JRP%20for%20Rohingya%20Humanitarian%20Crisis%202018.PDF 8 - According to the World Bank, the sudden influx of over 725,000 Rohingya to Cox’s Bazar caused the loss of nearly 13000 hectares of forest. https://www.worldbank.org/en/news/press-release/2018/11/05/world-bank-helps-host-communities-rohingya-in-bangladesh I Metasynthesis DEC Rohingya Refugee Crisis Response I 21
Recent assessments conducted by our partner have identified negative impact for the host communities who are now in chronic food insecurity due to loss and damage of livelihoods assets by disasters, reduced employment opportunities and natural resources due to the influx of people deforestation. In addition, population is generally still in stakeholders and communicate local market prices have need of assistance for food and about their withdrawal with key increased while salaries and primary health care. There are stakeholders, including national wages have decreased as the more ‘development’ related authorities. refugee population agrees to activities and some of the initial work for lower prices than the DEC activities have continued, Bangladeshi communities. such as solar lighting, site CHS analysis and management, Disaster Risk summary DEC Member Charities have Reduction, protection and included host communities in education. The main issues More than 90% of all the quotes their programming in an effort that might prevent these and references related to to support all those affected organisations from continuing “Effects” by key informants were by the disaster; to strengthen to address priority needs in this directly linked with three CHS resilience and social cohesion area are lack of funding and criteria: CHS criteria 1, 2, and 3. and dissipate possible policy restrictions, in particular tensions. The Government of regarding access to justice, Per order of importance Bangladesh, though pushing education and livelihoods. according to key informants, the for funds to be channelled CHS criteria 1 - Humanitarian to host communities related Other DEC Member Charities response is appropriate and activities, was initially reluctant have decided to withdraw relevant – represents 49% of to approve activities including once the DEC funding run all the quotes and references both refugees and host out or are anticipating their related to effects with specific communities. departure within a few years. strengths underlined for the All these organisations are added-value of integrative planning to handover their approaches, the importance Exit strategies remaining projects to local of innovations in such a
With a crisis that will last well Save the Children workers prepare nutritious food at Mainarguna beyond the maximum two- Health Post and Nutrition Centre, Kerantoli / Chakmarkul camp, year DEC funding duration, Bangladesh, on 17 May 2018. questions have been raised on how DEC related projects could withdraw responsibly.
As there is no perspective of a rapid improvement for the Rohingya population, and despite the decrease in available funds, many DEC Member Charities have continued to provide assistance even after the DEC funding stopped. There are needs in terms of maintenance, looking after infrastructure, running facilities, and the 22 I Lessons learned I
complex environment, and the strategies, the negative impact “Effects) highlights the fact adjustments made to integrate of the crisis on local livelihood DEC funding has allowed its host communities. and the related tension between Member Charities to intervene refugees and host communities, rapidly with, however, many CHS 3 - Humanitarian response and the environmental impact unmet needs due to the scale strengthens local capacities and of the crisis in an area that of the crisis and the difficulty avoids negative effects – has was once part of Teknaf Game to implement specific activities also been highlighted by key Reserve. that were identified as needed informants (28% of all quotes/ but not always authorized references to “Effects”) due CHS 2 - Humanitarian response by the government (Limited to political constraints that is effective and timely – (14% Mental health and psychosocial do not foresee satisfying exit of all references related to services, livelihood, etc.).
MOST IMPORTANT CHS CRITERIA CHALLENGES / STRENGTHS (PER ORDER OF DIFFICULTIES PRIORITY)
• Innovations: e.g. Solar lighting system, Faecal sludge CHS 1 - management system. • Complex context of intervention (cultural, political, natural, etc.) Humanitarian • Integrative approaches: e.g. response is Integrated Site Improvement • Many activities that are identified as appropriate and Approach. needed are not permitted • Adjustment to the context: e.g. relevant. outreach teams for reaching all groups populations.
CHS 3 - • Towards a protracted refugee crisis. Humanitarian • Political constraints that do not • Combination of Disaster Risk allow humanitarian stakeholders to response Reduction & basic needs foresee satisfying exit strategies. strengthens interventions. • Negative impact on the local local capacities • DEC flexible funds allowed to economy and tensions between support local capacities. refugees and host communities. and • Huge pressure on a limited natural avoids negative environment that also poses risks during the rainy season of increased effects. erosion, mudslides and flooding.
• Unmet needs due to the scale of the crisis and governmental limitations: e.g. Mental health and psychosocial CHS 2 - • Rapid DEC intervention services (MHPSS) remain a Humanitarian significant gap in the response • Extended support to extreme with several NGOs not able to get response is poor and vulnerable host approval for MHPSS service. community households. effective and • Limited long-term funding - timely. challenges to continue some of the essential services that we initiated through DEC fund- such as health post. I Metasynthesis DEC Rohingya Refugee Crisis Response I 23
STAKEHOLDERS
Coordination
This emergency response was led and coordinated by the Government of Bangladesh, 2. Word cloud who had established a National related to Strategy on Myanmar Refugees «stakeholders» and Undocumented Myanmar used by key Nationals in 2013. The refugee informants camps were jointly managed by the Bangladesh Government, IOM and UNHCR.
The Bangladesh Government worked through the Refugee Relief and Repatriation Commissioner (RRRC), based in Cox’s Bazar, with individual Camp in Charge officers responsible for each separate camp. For the humanitarian agencies, strategic guidance and national level government engagement was provided by the Strategic Executive Group in Dhaka, co-chaired by the Resident Coordinator, IOM, and UNHCR.
In June 2017, a sector-based coordination structure with an inter-sector coordination role, hosted by IOM and co- supported by UNHCR, was agreed for the response. The and the Area Focal Organizations despite the fact that they would structure was strengthened (UNHCR and IOM) decide and have had better understanding after the August 2017 arrivals, allocate sites and intervention and a more direct relationship with the introduction of a Senior components to various with the local authorities. Local Coordinator role whose direct organizations responding to the NGOs played a more important counterparts were the RRRC crisis. role in coordination at camp and DC (Deputy Commissioner), level, but the lack of coherence UN agencies and international expanded functions within an between the different actors and NGOs played a central role inter-agency coordination team, roles at different coordination in coordination, in spite of and the establishment of new levels, in camps, in Cox’s Bazar confusion about UN leadership, sectors, working groups and and in Dhaka, was not efficient. which was split between co-chair arrangements. Through UNHCR and IOM, and made Coordination issues resulting the Inter-Sector Coordination accountability for operations in gaps were mentioned, for Group (ISCG), agencies working difficult. In addition, national instance in latrine construction, on the ground communicate partners and local NGOs were distribution of WASH NFI, or and coordinate their responses. only given a marginal role other basic goods and specific ISCG, the Camp in Charge (CiC) 24 I Lessons learned I
“Although it would not have been possible in the beginning, given the chaos that ensued at the onset of the crisis, a more coordinated approach would have made the response overall more efficient, effective and equal for all beneficiaries (…) From a coordination perspective, there were a lot of internal politics between IOM and UNHCR about who should have been leading on the response. The two UN bodies have different mandates and allowing UNHCR to have full responsibility in the beginning may have resulted in a more streamlined approach” kits; drilling of boreholes, of refugees, however the Rohingyas therefore remains a planning for desludging, etc. In Government and people of major concern. compensation, the DEC Member Bangladesh have demonstrated Charities tried to reinforce remarkable international As very often is the case in coordination and information solidarity by keeping their border migratory crises, there are crucial sharing at field level. open to those fleeing violence in political issues to be dealt with the Rakhine state.”9 and the humanitarian sector Although several key informants cannot ignore them. Bangladesh in this review mentioned they The Bangladeshi Government has been pushing strongly for a would have appreciated stronger responded rapidly upon the rapid repatriation of the Rohingya coordination among DEC arrival of the Rohingya refugees, population. It has therefore Member Charities, it seems this allocating land in the Cox’s Bazar refused to acknowledge their would have added an additional area and providing assistance refugee status, and has selected layer of coordination, and would via several different government humanitarian projects and possibly have led to more departments. The Ministry of specific activities that were not confusion and more time spent in Disaster Management and likely to prolong the situation. meetings. Relief and its Office of the Restrictions were imposed on Refugee Relief and Repatriation materials that could be used Commissioner were assigned to for construction, and also on oversee the refugee response. Role of the government activities that sustain livelihoods However, the Government of (Cash transfers, Income “Bangladesh is not a party to Bangladesh doesn’t consider Generating Activities and “soft” the 1951 Refugee Convention a future for the refugees in the activities such as Education, and it does not have domestic country and strongly rejects the SGBV prevention, Mental refugee legislation that regulates possibility of local integration. The Health Support, Protection, and the reception and protection lack of durable solutions for the trainings/sensitization).
DEC Member Charities have “Vulnerability factors are the indicators behind reacted in different ways to beneficiary selection but every person was these political constraints. Some organisations have been involved vulnerable in their own sense. Some families in national advocacy campaigns received LPG, whereas others did not, some even though those have created tension with the local and families had access to the community kitchens national authorities. Others have adopted a “low profile” and or to latrines and washing facilities in close have usually followed the UN proximity, but many did not. lead in advocating for unfettered A more coordinated approach would have access to Rakhine to ensure that allowed us to identify gaps sooner.” 9 - http://reporting.unhcr.org/node/2539 I Metasynthesis DEC Rohingya Refugee Crisis Response I 25
We need advocacy other protection issues had to be participatory way. dealt with during this response. on the global level, Ensuring camps were safe at DEC Member Charities, along night was a major concern, some not on the field with the other stakeholders, actors mentioning that when level. For a long-term contributed to reducing the the humanitarian staff left, it insecurity of individuals, groups was hard to know how safety situation, INGOs, and and communities at risk. In 2018, was ensured in camps. All the the international activities started focusing more more so for women and girls on protection and multi-sector exposed to Sexual and Gender community should preparedness and response Based Violence, sometimes work on a global for the monsoon and cyclone already in Myanmar or on their season. The Rohingya refugees way to Bangladesh when fleeing response at global received support through violence, and then vulnerable to transitional interventions, these threats again once in the level. I think that encouraging a shift away from camps. Solar street lighting was this is a big work for meeting immediate humanitarian therefore proposed, as well as the needs toward solutions-oriented distribution of hand-held solar the United Nations. I responses. lamps.
thing that their task During this crisis, and given Protection programmes are likely is not distributing the conservative nature of the to require specialized and skilled Rohingya society, access to human resources, which can be food, their task is to women and girls sometimes difficult to find, especially in a find a solution with proved challenging. DEC Member country like Bangladesh where Charities put in place alternative organisations are more qualified Myanmar. ways of reaching women and in managing natural disasters girls to provide them with than in managing complex protection, notably by hiring emergencies such as a refugee development and humanitarian women volunteers with whom crisis. assistance reaches all people in communicating was easier. need. It seems the protection lens could have been used much Local capacities Protection earlier in the response; however, National NGOs have played an DEC Member Charities were important role in the response. Ensuring the protection of faced with numerous delays and If many of them lacked populations is a key objective obstructions as the Government experience in refugee response of humanitarian action, which of Bangladesh was reluctant to and in managing large scale is especially crucial during a deliver authorisations related emergencies, they brought refugee crisis. People need to this type of activity. They relevant experience working with material assistance, food, water had to shift to other activities, local communities on social and and shelter, as well as medical sometimes mainstreaming economic issues and disasters assistance, but also physical protection through other sectors, and were among the first to help integrity, psychological support which took more time to design. meet the immediate needs of and dignity. In sectors such as WASH for refugees. The role played by instance, they made sure latrines national NGOs in the response In addition to the crucial role of were gender-segregated and was also crucial in the way they the United Nations in advocating had a lock so that women felt were able to influence the local for a safe return of the Rohingyas safe. In the same way, WATCH government notably through their to their country, for their rights, committees were set up, knowledge of political dynamics. such as the recognition of their including a majority of women, refugee status or at least the with the aim of identifying Many DEC Member Charities right for them to have an official protection risks and threats have worked with local identification document, many in order to mitigate them in a implementing partners usually 26 I Lessons learned I
INGO will come and management and cooperation language and communication methods. These adjustments with international staff is go but the locals will were made more or less easily limited. Although it is frequently stay forever depending on the already existing mentioned that the local role and capacities of local staff Bangladeshi language, from and partners. At that time, the Chittagong area, is similar to starting with a due diligence principle of «localisation» was no that of the Rohingya population, process that included a capacity longer only desired but necessary it seems that there were assessment such as the MANGO to be able to continue the frequent misunderstandings and health check assessment to interventions. oversimplification in relation to assess financial capacities, review information sharing. In addition, code of conduct, child protection information boards were initially policies, as well as other key Working with the written in English and Bengali organisational documents such Rohingya when pictograms and illustrations as organisational strategy. In would have facilitated a larger practice, a key challenge was The involvement of the Rohingya understanding. to adapt the type and level of population in the response took time. Most of them did not Cultural norms that restrict support from DEC Member the involvement of women in Charities while local partners receive proper information about decisions being made regarding many activities are a major have often been overwhelmed challenge for participation and with demands and have struggled the response to their needs, about their future or even about inclusion. However, during the to play a role in coordination response, more and more women bodies. when the next ration supply would be distributed. The refugee volunteers were mobilised, which It’s worth noting that there is population was not systematically allowed communication and much more work to be done on involved in needs assessments information sharing with women strengthening local capacities. and in programming activities. refugees. DEC Member Charities The majority of the camps are co- were able to establish various managed by international NGOs, All DEC Member Charities put communication channels to not national or local organisations feedbacks and complaints promote community involvement, and the coordination system in place with various and to help people understand mechanisms are dominated methods; some channels proved the response, such as interactive by international organisations. more effective than others. The theatre, transparency boards, Exit strategies should focus on level of education is low among meetings with Majhis, and strengthening the capacity of the Rohingya population, due to different committees. local organisations to take on years of living in restricted and these roles to ensure planned controlled areas in Myanmar, with and sustainable exit strategies in very limited access to schools. CHS analysis and the future. The refugees therefore have little summary knowledge and information about A further challenge to local their rights and entitlements, 80% of all the quotes organisations and capacities all the more so for women who and references related to was the high salaries provided by have had even less access to “Stakeholders” by key informants some International NGOs led to information and education. were directly linked with three some national/local organisations Literacy is very low, so the CHS criteria: CHS criteria 3, 4, struggling to retain skilled staff. effectiveness of approaches such and 6. as complaints boxes is unclear. The COVID-19 global health crisis Direct feedback / complaint was Per order of importance arrived after the DEC intervention favoured by beneficiaries rather according to key informants, the and at a time when civil society than through a hotline or a box. CHS criteria 3 - Humanitarian local leadership was already response strengthens local stronger but, and in particular Communication was also a capacities and avoids negative with the exit of some international challenge because of language effects – represents 36% of staff, it has forced international barriers. The Bangladeshis do all the quotes and references aid actors to adapt their not understand the Rohingya related to stakeholders. In this I Metasynthesis DEC Rohingya Refugee Crisis Response I 27
category, “partnership” between time cooperation for the DEC CHS 4 - Humanitarian response some DEC Member Charities intervention. is based on communication, and local organisations has often CHS 6 - Humanitarian participation and feedback – been mentioned as a key source response is coordinated and (14% of all references related to of learning with examples of complementary – has also been “Effects) highlights the barrier due diligence process for local highlighted by key informants of communication and cultural partners, questions on how DEC (26% of all quotes/references Member Charities and local to “Stakeholders”) with a key norms that restrict access to partners can interact and support challenge related to the multiple women and their involvement in each other, and differences of coordination systems that were activities. relationships between long-term not always connected and could cooperation and specific one- share contradictory information.
MOST IMPORTANT CHS CRITERIA CHALLENGES / STRENGTHS (PER ORDER OF DIFFICULTIES PRIORITY)
CHS 3 - • Local organisations considered Humanitarian as real partner and sometimes response • Partnerships between local and simply as service provider. strengthens local international organisations. • Bangladeshi organisations capacities and • Effective due diligence process more trained in “natural” rather avoids negative for local partner by some DEC than “man-made” disasters. effects. Member Charities. • High level of insecurity and 26% of all the quotes occurrence of gender-based and references related violence. to “stakeholders”
CHS 6 - Humanitarian • Combination of Disaster Risk • Multiple coordination systems Reduction & basic needs were not connected and response is interventions. often shared contradictory coordinated and information. • DEC flexible funds allowed to complementary. support local capacities. • Challenges in communication 26% of all the quotes and coordination with the and references related Government. to “stakeholders”
CHS 4 - Humanitarian • Innovative communication tools: interactive theatres, transparency • Cultural norms that restrict response is based boards, Women friendly spaces, access to women and their on communication, etc… involvement in activities. participation and • Watch committee with a majority • Language issue between feedback. of women involved to identify Rohingya and Bangladeshi. 19% of all the quotes protection risks and mitigate and references related them. to “stakeholders” 28 I Lessons learned I
IMPLEMENTATION
The largest refugee camp in the world
The refugees are concentrated within extremely congested 3. Word cloud sites in the Ukhia and Teknaf related to Upazilas of Cox’s Bazar. «Implementation» Kutupalong, a refugee camp used by key in Ukhia, has now become the informants biggest camp in the world. As of February 2018, there were ten camps and settlements, ranging in size from 9 900 refugees in Shamlapur, to more than 602 400 refugees in the Kutupalong-Balukhali Expansion Site. To the South of the Expansion Site, Jamtoli, Hakimpara and Potibonia are indistinguishable, housing 101 400 refugees between them. Around Nayapara Refugee Camp and Leda in Teknaf, settlements have joined to form a third sprawling concentration of more than 88 300 refugees, which continues to expand and spread into surrounding villages. 336 000 Member Charities of the host community are also considered to be in need. It is worth noting that a number of new arrivals have and increases the risks of fire especially vulnerable people also been absorbed into the hazards, diseases spreading who have mobility issues. local community. A total of over and water contamination. 110 000 Rohingya refugees The need for large quantities of are estimated to reside in host Building infrastructures in shelter material had a strong communities.10 such densely-populated areas impact on natural resources. is an additional challenge. A lot of trees and bamboo Access is difficult because not were cut down, affecting A challenging context all the different parts of the the local environment and mega-camp are connected by biodiversity, especially as the The density of shelters in very good roads. As a result, some Government of Bangladesh limited spaces, sometimes sections are more isolated, did not allow other longer-term located on hilly treeless slopes which means that it can be more and sustainable materials makes the refugees vulnerable difficult for the people there to be used in the shelter to any extreme weather episode to get access to assistance, rehabilitations.
10 - As of June 2020, 34 camps are established, hosting 860 356 refugees. https://data.humdata.org/dataset/site-location-of-rohingya- refugees-in-cox-s-bazar I Metasynthesis DEC Rohingya Refugee Crisis Response I 29
Similarly, the need for wood fuel sustainable during the cyclone set duration. In principle, FD7 had a severe impact on a fragile and rainy seasons. requests should be processed ecosystem, although alternative within 72 hours of submission energy sources, such as rice In May 2017, cyclone Mora hit by the NGO Affairs Bureau and husk or even the use of LPG south-eastern Bangladesh, should cover a three to six- cookers for some beneficiaries, including Cox’s Bazar area and month timeframe. However, in were progressively introduced.11 some refugee settlements, practice, the NGOAB took much Community kitchens were also notably destroying 50 000 longer to process FD7 requests. 12 put in place, both reducing the homes and structures. In 2018, It frequently issued approvals demand for fuel, and creating the monsoon itself caused for only short durations and 13 social bonds between women floods and landslides, however sometimes asked NGOs for cooking together. the worse was avoided in that a additional documentation to massive natural disaster hasn’t support their FD7 requests. As In addition, the camps were created a second major crisis in a result, there were critical gaps built on land that was partly the crisis. in NGOs’ capacity to meet the cultivated by the host- A heavy bureaucratic burden immediate needs of refugee and communities. As a result, the host communities. latter have lost certain assets, on humanitarian stakeholders which has led to tension in some NGOs faced a number of Projects were frequently only areas. challenges in terms of obtaining approved for three-month periods (sometimes only one Preparedness government authorizations to deliver aid and due to or two months), a sign that the Most at-risk households had coordination issues, that authorities were trying to solve a chronic problem with short-term not yet been relocated when hindered the efficient delivery solutions. As a result, aid actors the monsoon season started of aid. in 2018. Indeed, contingency were unable to provide the most and preparedness activities to All national and international relevant assistance. However, it relocate exposed households, NGOs receiving international was also noted that Government or to reinforce shelters, started funding for the refugee officials gradually began to quite late, only a few weeks response had to have a special understand the complexity of before the season was expected permit issued by the NGO the work involved and the issues to begin, and remained quite Affairs Bureau to be allowed at stake. limited, with the chance of to operate in Cox’s Bazar. The moving to a safer place reserved FD7 is a special facility for only for the most exposed emergencies, it is issued on a Adaptive management households. project-level basis, specifying which activities and costs are This intervention was very There was a great deal of anxiety approved, and it is valid for a complex, with people and among refugees and aid actors organisations facing huge regarding the rainy season, as operational and institutional the camps are located in areas The FD7 approval challenges. Under these at risk of floods with no other conditions, the implementation land available. process should be and contribution of DEC part of this wider Member Charities to the In addition, the restrictions improvement of living conditions imposed by the government on dialogue for opening relied on their capacity to the type of material authorized adapt to changes and respond for shelter reinforcement up humanitarian effectively to uncertainties.14 limited their resistance, notably space in a refugee the roofing materials - mostly A first step was to create polyethene sheets - are not response or strengthen an «adaptive
11 - At the time of report writing, the use of LPG is rolled out throughout all the camps 12 - Not only in refugee camps 13 - IFRC, Bangladesh Population Movement, two-year Federation wide report. 14 - HEM 2018 - Gestion et programmation adaptatives : la perspective humanitaire – Alice Obrecht 30 I Lessons learned I
Unlike most other grants, the relatively longer duration of the project helped to mitigate the unforeseen challenges in the context and allowed us to properly plan and implement the activities for the best outcome environment”, and DEC played a key role in this respect. DEC flexibility with regard to programme design - and redesign - in relation to needs on the ground and changes in Women participate in a group discussion about good hygiene, and receive the context, was underlined as dignity kits, at a session provided by Plan International in Balukhali-1 Camp a key success factor. The two b-32, Bangladesh, on 21 May 2018. phases (Phase 1 - 6 months / Phase 2 - 18 months) proved CHS analysis and summary CHS 8 - Staff are supported to to be useful for DEC Member do their job effectively, and are Charities as they allowed them 80% of all the quotes treated fairly and equitably – to focus on immediate lifesaving and references related to (12% of all references related to support first, and then adjust “Implementation” by key “Implementation”) highlights the the intervention to the identified informants were directly linked challenges with high turn-over of priorities needs. with three CHS criteria: CHS staff, limited local capacities in criteria 2, 6, and 8. In such a complex environment, sectors such as WASH, health… each DEC member tried to Per order of importance in refugee camps and potential adapt to continuous changes, according to key informants, the risk for female volunteers. and most of the planned CHS criteria 2 - Humanitarian CHS 6 - Humanitarian objectives were reached at response is effective and response is coordinated and the end of the second phase. timely – represents 58% of complementary – has also been These adjustments sometimes all the quotes and references highlighted by key informants raised issues, including: the type related to “Implementation”. (10% of all quotes/references of support required between There are two main highlighted to “Implementation”) with a headquarters and field staff, or points under this category – 1. positive feedback on donor between DEC Member Charities Difficulties to meet accepted cooperation while questions and local partners; the level of minimum standards (e.g; were raised on how more delegation for decision-making; SPHERE) at the beginning of synergies could have been or the importance of motivation the intervention and 2. Delays possible considering the and interpersonal skills in such due to the heavy bureaucratic approval constraints from the a complex situation. burden on humanitarian government. stakeholders. I Metasynthesis DEC Rohingya Refugee Crisis Response I 31
MOST IMPORTANT CHALLENGES / CHS CRITERIA STRENGTHS DIFFICULTIES (PER ORDER OF PRIORITY)
• DEC flexibility with regard CHS 2 - Humanitarian • Initial services did not meet to programme design and response is effective international quality standards in redesign and timely. humanitarian aid (e.g. SPHERE). • Funding structured in two 58% of all the quotes • Delay of Government approval phases (Phase 1 - 6 months and references related to and multiple layers of protocols “stakeholders” / Phase 2 - 18 months).
• High turn-over, skilled staff CHS 8 - Staff are by higher wages in larger or supported to do their international NGOs or agencies. job effectively, and • Human resources locally are treated fairly and very experienced in DRR / equitably. preparedness skills but not in 12% of all the quotes camp management / health / etc and references related to • Potential risks to female “stakeholders” volunteers
CHS 6 - Humanitarian response is • Possibility to have more • DEC Donor cooperative, coordinated and flexible synergic approach to easy to access, and willing complementary. satisfy people’s need between to listen field needs. 10% of all the quotes implementers. and references related to “stakeholders” CONCLUSION I Metasynthesis DEC Rohingya Refugee Crisis Response I 33
SUMMARY - CHS HEALTH CHECK This CHS Health Check intends to summarize key informants’ learning points about the DEC Rohingya Refugee Crisis Response compared to the quality criteria of the Core Humanitarian Standard (CHS).15
IMPORTANCE % of all CHS CRITERIA references/quotes by key informants
CHS 1. THE INTERVENTION IS APPROPRIATE AND RELEVANT 16%
• Facing a very complex environment of intervention, traditional basic needs activities can be adjusted with specific innovations such as the Faecal sludge management system that has been used during the DEC Rohingya Refugee Crisis Response. They can also be integrated into a more global approach (e.g. Integrated Site Improvement Approach) to reinforce synergies between different sectors of intervention. • Dividing the intervention into two phases has allowed DEC Member Charities to intervene rapidly during the first 6 months while conducting needs analysis to propose more “tailored” activities during the second phase, including activities such as Disaster Risk Management or specific innovation such as solar lighting system.
CHS 2. THE INTERVENTION IS EFFECTIVE AND TIMELY 30%
• Being able to release funds quickly was critical to address priority needs in a timely manner. • Political constraints had an important influence on humanitarian interventions, including: • Activities delayed by Government approval; • Unmet needs due to the difficulty to implement specific activities that were identified as needed but not always authorized by the government (Mental health and psychosocial services, Livelihood, etc.). • International quality standards (e.g. SPHERE) needed to be contextualised in this very specific setting and were not sufficiently known by all stakeholders. Help is now more organised but there are still differences of standards between the camps. • Support was extended to extremely poor and vulnerable host community households. • DEC donor flexibility with regard to programme design and redesign was key to adjust interventions in this complex environment.
15 - More information about this tool - https://www.urd.org/en/publication/toolbox-quality-accountability-compass-to-help-implement- the-chs-in-the-field-2019/ 34 I Conclusion I
IMPORTANCE % of all CHS CRITERIA references/quotes by key informants
CHS 3. THE INTERVENTION STRENGTHENS LOCAL CAPACITIES AND AVOIDS NEGATIVE EFFECTS 21%
• Negative effects of the crisis only partially addressed by humanitarian assistance: > Environmental impact of the crisis in an area that was once part of Teknaf Game Reserve and huge pressure on a limited natural environment that also poses risks during the rainy season of increased erosion, mudslides and flooding. > Towards a protracted refugee crisis with political constraints that do not foresee satisfying exit strategies. > Negative impact on the local economy and tensions between refugees and host communities. > High level of insecurity and occurrence of gender-based violence.
• Local capacity building only partially addressed by humanitarian assistance at five levels: > Bangladeshi organisations more experienced in “natural” rather than “man-made” disasters. > Local implementing partner organisations sometimes managed as long-term partner with strong support and capacity-building, and sometimes simply as a one-shot service provider. > “Partnership” between international and local organisations often been mentioned as a key source of learning with examples of due diligence process for local partners, questions on how DEC Member Charities and local partners can interact and support each other, and differences of relationships between long-term cooperation and specific one-time “service provider” cooperation. > Limited local civil society leadership at the beginning of the humanitarian intervention. > Limited strengthening of local resilience due to political limitations.
CHS 4. THE INTERVENTION IS BASED ON COMMUNICATION, PARTICIPATION AND FEEDBACK 9%
• Cultural norms that restrict access to women and their involvement in activities have been partially addressed through innovative communication tools: interactive theatres, transparency boards, Women friendly spaces, etc.
CHS 5. COMPLAINTS ARE WELCOME AND ADDRESSED 2%
• Complaints Response Mechanisms (CRM) were implemented to ensure everybody has the opportunity to raise concerns, make complaints and give feedback across all stages of the project management cycle but very few complaints were made while surveys and consultations have highlighted that the most preferred channel for raising feedback was face to face or through community leaders. I Metasynthesis DEC Rohingya Refugee Crisis Response I 35
IMPORTANCE % of all CHS CRITERIA references/quotes by key informants
CHS 6. THE INTERVENTION IS COORDINATED AND COMPLEMENTARY 14%
• Multiple coordination systems were not always connected and could share contradictory information. • Communication and coordination between humanitarian stakeholders and authorities were challenging. • Synergies between implementers were limited by the approval constraints from the government. • DEC Donor was cooperative, easy to access, and willing to listen field needs.
CHS 7. STAKEHOLDERS ARE CONTINUOUSLY LEARNING AND IMPROVING 2%
• The Real Time Evaluation has helped defining some learning points on the response. • Government restrictions on foreign visitors entering the camps have caused disruption to project learning, knowledge sharing opportunities and coordination.
CHS 8. STAFF ARE SUPPORTED TO DO THEIR JOB EFFECTIVELY, AND ARE THEY TREATED FAIRLY AND EQUITABLY 6%
• High turn-over, skilled staff attracted by higher wages in larger or international NGOs or agencies. • Human resources locally very experienced in DRR / preparedness skills but not in camp management / health, etc. • Potential risks to female volunteers
CHS 9. RESOURCES ARE MANAGED AND USED RESPONSIBLY FOR THEIR INTENDED PURPOSE 2%
• Rohingya refugees in camps remain largely dependant on external assistance but funding opportunities are decreasing. 36 I Conclusion I
RECOMMENDATIONS
Effects
SECTOR LEVEL RECOMMENDATIONS EFFECTS / RECOMMENDATION REMARKS OBSERVATIONS FOR NGOS / DEC CHANGES FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
Integrative Document and share Facilitate and and good practices encourage innovative dissemination and approaches learning exercises Promote multi-sector among Member CHS 1 approaches within Charities one organisation or between different implementers (e.g. Keep current two- Integrated health, phase approach to nutrition and WASH allow DEC Member programming). Charities to adjust their intervention to Effects priority needs. Challenges, good Use Phase 1 to practices and intervene rapidly while assessing existing recommendations needs, resources and in terms of how context of intervention activities and to develop tailored activities in Phase 2. innovations have addressed Women’s Hiring more female identified needs. empowerment staff, at different levels, from the community CHS 3 & 4 outreach level to management level.
Needs remain Design activities that Adapting donor Document in terms of mainstream protection guidelines including protection early-on emphasis on the and safety in importance of protection camps CHS 2 I Metasynthesis DEC Rohingya Refugee Crisis Response I 37
SECTOR LEVEL RECOMMENDATIONS EFFECTS / RECOMMENDATION REMARKS OBSERVATIONS FOR NGOS / DEC CHANGES FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
Huge Design activities Adapting donor Need for a global pressure that mainstream guidelines, reporting environmental on a limited environmental documents policy / guideline considerations early- and evaluation to prevent environment on criteria to include and reduce CHS 3 environmental environmental footprint reduction impacts within Develop lessons refugee camp Include settings learned from this environmental intervention on how to criteria in the Discussions operate in extremely assessment and due between other cramped camp diligence carried humanitarian settings out with new/ donors to discuss renewed Member challenges and Charitieships opportunities of Environmental environmental Continue to mainstreaming management encourage lesson sharing https://www.urd. Challenges, good on environmental org/wp-content/ practices and mainstreaming uploads/2020/05/ amongst DEC Groupe- recommendations Member Charities URD-Inspire- in terms of studypublic.pdf how natural constraints and Working in Document and share With more crises constrained good practices potentially happening environmental environments in urban contexts (although this was impact have been WASH, Health Rely on coordination not) where space is managed. risks mechanisms and limited, facilitate a specific research on CHS 2 & 6 communications between stakeholders, how to operate in especially at camp extremely cramped level, to avoid camp settings. duplications, Keeping the overlapping, gaps and same flexibility health risks / adaptiveness regarding activity programming, in order to allow Member Charities to reorient planned activities depending on other actors / on context change, etc.
Towards a Consider long- term For a long-term Advocacy role for protracted solutions at the crisis, consider UNHCR / ICVA / refugee crisis beginning proposing a phase OCHA Exit strategy 3 implemented Assess the type of by national Channelling a Challenges, good crisis to anticipate organisations or larger portion of practices and Political if it will be a long- societies with funding to national term crisis, and limited support organisations recommendations constraints adapt accordingly rather than / influence from DEC member (involvement of local organisations. funding in terms of how on the exit capacities.) intermediaries post-intervention strategies Develop an exit has been strategy at the latest anticipated and at the end of Phase CHS 3 1 / beginning of managed. phase 2 and start the handing-over to local organisations as early as possible
Stakeholders 38 I Conclusion I
SECTOR LEVEL RECOMMENDATIONS RECOMMENDATION REMARKS STAKEHOLDERS OBSERVATIONS FOR NGOS / DEC FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
Multiple Encourage Avoid creating coordination communication international systems were and information coordination not connected sharing between mechanisms DEC Member disconnected from and often Charities. However, local coordination shared adding another layer mechanisms contradictory of specific DEC information coordination would increase the burden CHS 6 on NGOs, rather than facilitating their work. Coordination Challenges, good Challenges in In a complex political communication environment of practices and and intervention, prioritize recommendations coordination both the emergency response and with the in terms of how advocacy. the coordination government Advocate at different has been handled. CHS 6 levels, according to the organisations’ mandate. Discussions at international, national but also at regional level, notably through local organisations with whom the dialogue with national authorities is much more effective and straightforward.
Partnership Clarify what INGOs Ensuring DEC Localisation: between are seeking in a Member Charities channelling a international partnership: a local build and maintain larger portion of and local leadership or a local strong partnerships funding to national service provider? locally, not only organisations organisations opportunistically but rather than Assess local partner in the long-term funding capacity and provide Local capacities intermediaries CHS 3 , 6 & 8 sufficient support Challenges, good for partners in practices and implementing a large- recommendations scale response in terms of how Local Take advantage Ensure capacity CHS of the strong building is done International capacities SPHERE skills Bangladeshi by DEC Member organisations have organisations have in Charities with their engaged with local DRR / preparedness partners. E.g allocate CHS 3 partners activities, while a specific amount or reinforcing their a percentage of the capacities in total budget that managing complex can only be used for emergencies involving strengthening local multiple sectors, capacities. including quality and accountability methods I Metasynthesis DEC Rohingya Refugee Crisis Response I 39
SECTOR LEVEL RECOMMENDATIONS RECOMMENDATION REMARKS STAKEHOLDERS OBSERVATIONS FOR NGOS / DEC FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
Communication Document and share Facilitate and Advocacy role for with good practices encourage UNHCR / ICVA / communities dissemination and OCHA When possible, learning exercises communicate with among Member Channelling a communities through Charities larger portion CHS 4 different channels: of funding local media (radio, to national TV, etc.); mobile organisations network operators rather than (if authorized); funding technology providers intermediaries and software developers; Art and theatre groups
Accountability Adapt complaints Foster discussion SPHERE mechanisms to local within members Exit strategy / complaint Quality & and feedback culture, consider about complaints Challenges, good participatory mechanisms in Accountability practices and mechanisms approaches various contexts COMPASS (consultation, and implemented recommendations iterative feedbacks through a in terms of how CHS 4 & 5 loops, etc.) rather participatory than complaints approach. post-intervention mechanism has been anticipated and High levels of Include protection managed. insecurity and activities concerning occurrence of gender-based violence at project gender-based launch (Lighting violence in camps, locks to latrines) with the involvement of the CHS 3 & 4 communities in order to understand their practices and uses. Include specific capacity building activities towards local autorities to make them understand the importance of protection.
Tension Include host Connect with between communities in needs Nexus reflexions refugees assessments and applied to forced extend support to displacement, in and host them. particular the EU communities communication “Live in Dignity”, Exit strategy in order to take (…) CHS 3 advantage of the involvement of development actors (e.g DEVCO, World Bank, etc.) in long lasting refugee situations 40 I Conclusion I
Implementation SECTOR LEVEL RECOMMENDATIONS RECOMMENDATION REMARKS STAKEHOLDERS OBSERVATIONS FOR NGOS / DEC FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
Facing a Document and share Facilitate and With more crises huge refugee good practices encourage potentially crisis, with dissemination and happening in continuous learning exercises urban contexts among Member (although this new arrivals Charities was not) where for months space is limited, in a limited drawing lessons space Initiate specific on this crisis will research on how to be useful. operate in extreme CHS 1, 2 & 3 camp settings (density, lack of in
Initial services Provide more capacity CHS Implementation building to staff in did not meet SPHERE Challenges, good international standards and quality practices and quality criteria Quality & standards in Accountability recommendations COMPASS in terms of humanitarian aid. how activities have been implemented, with CHS 2 a specific focus on the role of Role of the Assess and anticipate government risks related to the Bangladeshi blockages from the authorities. government CHS 2 & 6
Advocacy Engage the government with continuous CHS 2 & 6 advocacy, or at least joint positioning, to streamline and harmonise the potential changing shifts in policy and regulations (e.g. FD7 approvals in Bangladesh). I Metasynthesis DEC Rohingya Refugee Crisis Response I 41
SECTOR LEVEL RECOMMENDATIONS RECOMMENDATION REMARKS STAKEHOLDERS OBSERVATIONS FOR NGOS / DEC FOR THE DEC / TOOLS / MEMBER CHARITIES DOCUMENTS
DEC Keep current specificities flexibility and proactive DEC management. Adaptative CHS 2 & 7 management Work with a learning Challenges, good partners, a capacity building organisation practices and that is able to recommendations conduct on-site in terms of how training, context- based research, real- adjustments time evaluations and have been made coaching/support to DEC Member in response to Charities. new information and changes in Strenghten current context. M&E system with Iterative Evaluations including Feedback Sessions so as to inform phase 2
Human resources National NGO When possible, Link with the H2H capacities prioritize partnerships initiative to facilitate Challenges, good with local organisations human resources practices and rather than hiring local capacity building resources. such as training on CHS 8 recommendations SPHERE standards. in terms of how staff have been Include specific activities for supported to do strengthening local HR their job. capacities 42 I Conclusion I
THREE YEARS LATER, WHAT IS THE SITUATION OF THE ROHINGYAS?
The threat of Covid-19 in the camps
On May 14, the first COVID-19 positive case within the Rohingya refugee community was declared. By the end of May, 132 cases were reported at the wider district level in Cox’s Bazar. Since April 2020, the Government of Bangladesh imposed a lockdown of Cox’s Bazar district and the Refugee Commissioner has demanded movement restrictions on aid workers, cutting manpower Sayed and his daughter Halima collect fresh food from an Oxfam food distribution point, Balukhali camp, Cox’s Bazar, part of the fresh food by 80 percent,16 only allowing voucher scheme. emergency food assistance, water provision and health care. activities have now ceased, and communities open to an safety is once again an issue for estimated 744 000 refugees17 the most vulnerable populations from Myanmar while providing “ Aid workers said in the camp. Safe spaces for land, sharing natural resources the restrictions have women and children have for and expanding services and instance stopped receiving infrastructures to the Rohingya led to disruptions public, thus creating gaps in fleeing violence and destructions assistance to victims of Sexual of their homes and assets. in water and and Gender Based Violence. sanitation, which Health centres have seen The response to the sudden a decline in visits for other influx of hundreds of thousands the World Health diseases and chronic illnesses - of Rohingya into Bangladesh in Organization has as refugees fear that if they are August 2017 has been complex, tested positively, they might be through their funding, the DEC said are essential to isolated and taken away - which and other donors contributed to protecting human aid actors fear will increase saving lives, reducing suffering other health related risks in a and improving the protection health during the vulnerable population. conditions and quality of life of most refugees. Covid-19 outbreak ” As repatriation to Myanmar may A protection crisis still take time, it remains crucial to keep providing assistance to Access to a safe humanitarian It is important to keep in mind refugees in Bangladesh, building space is once again questioned how the Government and people upon the framework provided by by these restrictions, concerns of Bangladesh demonstrated the Global Compact on Refugees, are voiced as all protection solidarity by keeping their border to keep advocating for a safe
16 - https://www.hrw.org/news/2020/04/28/bangladesh-covid-19-aid-limits-imperil-rohingya 17 - UNHCR: http://reporting.unhcr.org/node/2539?y=2020#year I Metasynthesis DEC Rohingya Refugee Crisis Response I 43
voluntary return to Myanmar and In this particular crisis, challenges often integrating protection to push considerations for third- to a more local humanitarian approaches in different sectors country options, as Bangladesh action have been revealed and sharing their successes so recently started the settlement through an existing tension that other actors could benefit of a few hundreds of Rohingya between the recognition of from their experience. refugees in Bhasan Char, the existing local capacity, especially controversial uninhabited flood- in natural disasters management, The refugee situation in the prone island in the Bay of Bengal. and the presence of a strong world keeps worsening: by the civil society and an important end of 2019 nearly 80 million 18 During this response, the DEC role played by the government, people in the world have lived Member Charities and the and the concerns of some a forced displacement situation, humanitarian system as a whole international actors over a lack and among them a very limited were engaged in improving and of local capacity in managing number will be able to return learning how to provide better a large complex emergency to their home-country rapidly. quality assistance for the people necessitating multiple types of The humanitarian sector should in need. They were confronted assistance in various sectors. keep drawing lessons from this with many challenges in this refugee crisis and its specificities; unprecedented migration crisis Working through the numerous very dense and congested which resulted in what has now obstacles in implementing camps located in disaster-prone become the largest refugee activities that were not approved areas; a constraining political setting in the world, but have or took time to get approval environment and a lack of global constantly strived to be able to was an important challenge leadership and strategy, and meet the population’s needs in for DEC Member Charities, improve the way they provide the most adapted way, which who came up with innovative assistance and mainstream became possible a few months tailored multisectoral activities, protection early-on. after this sudden crisis started.
Despite the challenges and Girls practice how to measure clothes with newspapers, at an ActionAid- constraints posed by the provided WC centre, in Mainarghuna camp / Balukhali camp, Bangladesh, complexity of the political on 20 May 2018. context in a refugee crisis, often hindering the implementation of a principled humanitarian assistance, the sector should keep considering long-term approaches in the first moments of intervention, thus integrating recovery and rehabilitation perspectives early-on, increasing links between these complementary approaches.
This also means involving the right stakeholders, emergency and development actors, including national and international organisations, thus ensuring the local organisations who will keep working in the area when the emergency phase ends are involved and given an important role.
18 - https://www.unhcr.org/dach/ch-fr/ publications/statistiques 44 I Appendix I
LIST OF ACRONYMS
AAP Accountability to Affected Populations
CHS Core Humanitarian Standard
CIC Camps in Charge
CWC Communicating with Communities
CWFS Children and Women Friendly Space
DEC Disasters Emergency Committee
DRR Disaster Risk Reduction Foreign Donations, form 7 (to request approval FD7 for NGO relief projects using foreign funds) HC UN Humanitarian Coordinator
(I)NGO (International) Non-Governmental Organisation
IOM International Organization for Migration
ISCG Inter-Sector Coordination Group
JRP Joint Response Plan
LPG Liquefied Petroleum Gas (cooking sets)
MEAL Monitoring, Evaluation, Accountability, and Learning
MHPSS Mental Health and Psychosocial Services
MDMR Ministry of Disaster Management and Relief
NFI Non-Food Item United Nations Office for the Coordination of OCHA Humanitarian Affairs RC UN Resident Coordinator
RRRC Refugee Relief and Rehabilitation Commissioner
SEG Strategic Executive Group
UN United Nations
UNHCR United Nations High Commissioner for Refugees
WASH Water, Sanitation, and Hygiene
WFS Women Friendly Space I Metasynthesis DEC Rohingya Refugee Crisis Response I 45 APPENDIX 1: ANALYSIS MATRIX
RELATED CHS IDENTIFIED GUIDING QUESTIONS COMMITMENTS LEARNING TOPICS CHANGES - The results of the activities on the improvement of the situation - What are the results of the intervention? Mainly based on the CHS Criteria 1, 2 & 3. • Can you name an activity that, according to you or your organisation, Effects has brought most significant changes? Why? Challenges, good • Has your organisation implemented any innovation that had specific practices and effects that you wish to highlight? recommendations • How did the DEC-funded work fit within or complement your CHS 1 in how activities and agency’s broader programme strategy / existing programme and innovations have delivery modality in response to this particular crisis? addressed identified needs. • How did you anticipate and manage any negative impact your activities may have caused? (Do no harm) Environmental management Challenges, good • Have you implemented disaster preparedness activities? What practices and were the challenges in implementing them in this context and CHS 2 recommendations in during the time of an emergency? how natural constraints • Have you been involved in mitigating the negative environmental and environmental impact of the crisis? If yes, in which way? impact have been managed.
Exit strategy • Do you consider that you have reached specific effects that do Challenges, good not require further follow-up? practices and • Have you planned a hand-over of your activities within your CHS 3 recommendations in organisation or outside? how post-intervention has been anticipated • Do you believe that targeted populations are more prepared, resilient and managed. and less at-risk as a result of your action? If yes, in which way? STAKEHOLDERS (with a particular focus on the distribution of roles and responsibilities between the different actors, and on localisation when applicable - How did the different actors contribute to the operation?), mainly based on CHS criteria 4, 5 & 6.
Coordination • Who were the key stakeholders involved in your intervention? Challenges, good • According to you, what were the main challenges in coordinating practices and the intervention in the context of a “mega-camp”? CHS 6 recommendations in how the coordination has • Did you have any specific cooperation with other DEC funded been handled. organisations?
Local capacities Partnership Challenges, good • How have you engaged with local partners (e.g stretching local CHS 3 practices and resources)? recommendations in • How did you evaluate the capacities of your partners (if any)? CHS 6 how local capacities • Do the relationships and procedures in place allow for a good flow of have influenced information? Capacity building? A sharing of responsibilities? interventions. Co-decision? Between you and your partner(s) (if any).
• Who were the main beneficiaries of your intervention? How did you ensure that your initial targeting was relevant? What were the Populations specific mechanisms that you have put in place when working with specific groups? (Women, children, older people, etc.) Challenges, good • What worked and what did not work in collecting feedbacks? CHS 4 practices and recommendations in • What were the specific actions for addressing “protection” CHS 5 how the different groups challenges? of population have been • How did you ensure that information was received and understood involved. by your target groups? • Which community representatives were you working with? How did you ensure his/her neutrality? 46 I Appendix I
RELATED CHS IDENTIFIED GUIDING QUESTIONS COMMITMENTS LEARNING TOPICS
PROCESSES / MANAGEMENT (the functioning and activities carried out in this operation, and in particular the impact on the environment of humanitarian programmes when applicable - How did the operation produce the observed results?) mainly based on criteria 7, 8 & 9.
Environmental challenges • What were the main difficulties (physical access, specific behaviours, culture and beliefs, etc.) for implementing activities? How did you overcome them? CHS 2 Implementation • How did you anticipate and manage the environmental impact of Challenges, good your activities? CHS 7 practices and CHS 8 recommendations in Bangladeshi authorities how activities have been • How did you interact with Bangladeshi authorities? What were CHS 9 implemented. the most important support and difficulties you benefited/faced with Bangladeshi authorities? • Have you implemented education, income generating activities or any other activity that were limited by the national and / or regional authorities? How did you manage these challenges?
• How did you anticipate necessary changes? (If any) Adaptative management • How did you ensure that the right decision was made at the right Challenges, good time? CHS 2 practices and • How has your organisation managed the relatively late CHS 7 recommendations in implementation of phase 1, and potential other delays in how adjustments have implementation. CHS 9 been made in response to new information and • Have you shared learnings with others, if so, how? changes in context. • Have you identified specific differences between DEC and other donor in facilitating adaptative management?
Human resources • How do you ensure that the appropriate (operational) staff have a minimum understanding of such a complex situation? Challenges, good practices and • How did you address the challenges in recruiting (and keeping) local CHS 8 recommendations in staff? how staff have been • How have you managed gender equity in this context? What were supported to do their job. the main challenges? I Metasynthesis DEC Rohingya Refugee Crisis Response I 47
APPENDIX 2: STRENGTHS AND CHALLENGES / WEAKNESSES19
EFFECTS / OBSERVATION / CHALLENGES STRENGTHS CHANGES TENDENCIES
Integrative In the first months, there was Integrating sensitization / awareness approaches not enough time to elaborate raising within other activities integrative approaches; life- (distributions, cooking classes, etc.) saving activities and basic needs Sewing classes allowing women to distributions were prioritized create clothes adapted to their needs and culturally appropriated, while being able to socialise and share with peers
Innovative It was only possible to consider Solar lighting solutions these approaches after the first approaches Business models based on few months of the intervention. CHS 1 algorithms However, the geographical Communication tools: interactive constraints and the challenge theatres, transparency boards, Effects posed by the huge number Women Friendly Spaces, etc. Challenges, good of people to consider forced stakeholders to come up with Combination of DRR & basic needs practices and innovative solutions interventions recommendations A number of Eco-san solutions were in terms of how also tested in this response (tiger activities and worm toilet; anaerobic digestor) innovations have addressed Women’s The conservative nature of both More and more women volunteers empowerment the refugee population and the were mobilised during the response, identified needs. host communities and hosting which allowed communication and country as a whole demanded information sharing with women subtlety and specific approaches refugees to be able to reach out to women’s WATCH Committees with a majority groups and to inform them of women involved to identify protection risks and threats and mitigate them
Needs remain Insufficient integration of in protection protection considerations and safety in during the first months of the camps intervention
19 - Important: All of the points synthesize the strengths, weaknesses and operational issues identified from the experiences of DEC members in Bangladesh. They do not therefore all apply to each DEC member, but are mentioned here to highlight the elements necessary for the success of a joint intervention. 48 I Appendix I
EFFECTS / OBSERVATION / CHALLENGES STRENGTHS CHANGES TENDENCIES
Huge Natural resource depletion: A number of initiatives aimed at pressure bamboo, wood but also water protecting the environment were on a limited reserves launched in Cox’s Bazar. This response is one of the few that has environment Loss of biodiversity (Part of the an Energy & Environment Technical refugee camps is located on a Working Group natural reserve) Increased risks: informal CHS 3 settlements face risks of flooding, landslides, and shelter collapse Environmental Waste management is limited management Land used for cultivation by Challenges, good host communities overtaken by shelters practices and recommendations WASH in a Need for important drainage in a As mentioned above interesting eco in terms of constrained hilly and constrained area san solutions were tested in Cox how natural environment International standards for constraints and / Health risks sanitation infrastructure cannot always be respected environmental Coordination challenges created impact have been sanitary risks, (building a latrine managed. too close to a drinking water point, for instance). Hygiene practices can prove difficult to follow in terms of access to water and soap, and being able to respect social distancing in crowded environments (Covid-19)
Towards a Ending the emergency phases protracted and entering the development phase with huge needs remaining refugee crisis
Political The uncertainty regarding a CHS 3 constraints possible safe return to Myanmar / influence and the limitations posed by the on exit Bangladesh Government mean Exit strategy that it is difficult for humanitarian strategies stakeholders to envisage Challenges, good satisfactory exit strategies practices and recommendations Decreasing JRP 2020 is currently funded up to in terms of how level of 25% (Required: 993.8 M. USD) post-intervention funding, JRP 2019 was funded up to 75% has been growing (Required: 920.5 M.USD) unmet needs anticipated and JRP 2018 was funded up to 71% managed. (Required: 950.8 M. USD)
Handing- At the end of DEC funding, National organisations have good over to local basic infrastructures are in capacities and skills in Disaster Risk organisations place. However, the need for Reduction / Preparedness activities maintenance and running the facilities is still important. Moreover, protection needs remain huge. I Metasynthesis DEC Rohingya Refugee Crisis Response I 49
OBSERVATION / STAKEHOLDERS CHALLENGES STRENGTHS TENDENCIES
Multiple • Time consuming / inefficient coordination / duplication of efforts systems “Although it would not have were not been possible in the beginning, connected and given the chaos that ensued at often shared the onset of the crisis, a more contradictory coordinated approach would have information made the response overall more efficient, effective and equal for all beneficiaries”. • UN and international NGOs playing a central role in coordination • Confusion related to UN leadership (UNHCR/IOM) and accountability for operations CHS 6 • National partners were only given a marginal role (as opposed to what the Coordination localisation agenda suggests) Challenges, good whereas these organisations would have had a closer practices and and more understanding recommendations relationship with local in terms of how authorities the coordination Challenges in Regular information gaps around has been communication government plans and the handled. and repatriation strategy which do not coordination align with the joint response plan. with the A lot of confusion related to the government FD7
No specific While DEC’s mandate does not coordination include specific coordination, mechanisms stronger strategic planning for DEC funded around the Member Charities’ intervention could have allowed NGOs more efficient programming, preventing overlapping and creating synergies “There was no coordination among the implementing partners of DEC fund in Rohingya Responses to avoid any duplication and also to follow same standard”. 50 I Appendix I
OBSERVATION / STAKEHOLDERS CHALLENGES STRENGTHS TENDENCIES
CHS 3 Partnership Importance of an effective due- Efficiency and reliability when two between diligence process to be able to organisations already have built a CHS 6 international select local partners when no strong partnership and local previous links exist (e.g. MANGO Health check assessment, etc.) organisations Local capacities Challenges, good Local More than 150 INGOs Increasing role of some international practices and organisations’ working in Cox’s Bazar, very organisations in reinforcing national capacities few organisations are led by organisations’ capacities rather than recommendations Bangladeshis in direct implementation in terms of how Bangladeshi organisations more International trained in “natural” rather than “man- organisations made” disaster have engaged with “INGOs will come and go but the local partners locals will stay forever”
Communication Language issue: Rohingya / Use of various channels of with Bangladeshi (+ different alphabet) communication to ensure community communities and a high level of illiteracy among involvement, understanding and Rohingya populations learning about the response, via interactive theatres, transparency Use of pictograms simplified boards, meetings with Majhis, and understanding of useful through different committees. CHS 4 information in camps CHS 5 Education level is very low among the Rohingya population, coming from years of living in restricted Populations and controlled area in Myanmar Challenges, good with very limited access to practices and schools recommendations Little knowledge and information about their rights in terms of how and entitlements, especially so the different for women who have had even less access to information and population education groups have been involved. One Targeting During the first months, there Adapting distribution methods to be priority focus were concerns about the targeting able to reach different population and quantity of aid provided to all groups in an appropriate manner, to be included households, with very little, if any, creating different slots for groups, – utilization of consultation of the population and thus limiting the waiting and allowing feedback (Process some questions about sectors a better access for vulnerable people and needs that should have been & content) prioritised.
(…) Accountability It still seems some stakeholders All organisations put such systems / complaints implement these as a box ticking in place with various methods; some and feedback exercise rather than as an channels proved more effective mechanisms important part of listening to what than others (direct feedback / beneficiaries have to say. complaints systems were favoured by beneficiaries rather than through a hotline or a box) I Metasynthesis DEC Rohingya Refugee Crisis Response I 51
OBSERVATION / STAKEHOLDERS CHALLENGES STRENGTHS TENDENCIES
Trafficking, The Cox’s Bazar area is known organised to be a base for illegal activities crime and (because of poverty, high level armed groups of unemployment, borders to Myanmar and India, sea access, etc.) The same patterns can be observed within the refugee population, with human trafficking being a major concern, especially regarding young women and children (child labour, child marriage).
High levels of The conservative nature of Security in camps: lighting is a major (…) insecurity and the Rohingya culture hindered need to improve safety and mobility occurrence of young and adolescent girls from in camps, especially for women and gender-based reporting and seeking help about children. these threats CHS 4 violence CHS 5
Populations Tension Tension over land with host between communities refugees Increased costs in Cox’s Bazaar and host area communities Decrease in wage rates as refugees are willing to work at lower costs Tension over resources “We faced pushback from local authorities when we organised combined refugee/ host communities’ activities as local authorities preferred activities that only target hosts or refugees.” 52 I Appendix I
PROCESSES / OBSERVATION / CHALLENGES STRENGTHS MANAGEMENT TENDENCIES
Facing a • numbers: + 700 000 new huge refugee refugees crisis, with • limited area allocated by the continuous Bangladesh Government, new arrivals for congestion months • huge numbers of organisations, of different types (local/intl – newcomers, etc.) • having to manage a huge amount of funding in the 1st year, then having to manage underfunding and growing unmet needs
Shelter / Restrictions to building Infrastructure materials that could be used for infrastructures and shelters. No long-term materials were CHS 2 supposed to be used, whereas CHS 7 the cyclonic exposure of the area meant that stronger materials CHS 8 should have been used. CHS 9 WASH sector Sphere standards on water supply and sanitation difficult to respect Implementation - because of the congestion and Challenges, good geographical constraints (hilly sandy land) practices and recommendations Initial services It is indicative of the challenging in how activities did not meet situation that sectors are have been international currently talking about quality ‘contextualised standards’. I.e. the implemented, influx of Rohingya was so rapid standards in with a specific and resources so stretched that humanitarian it has not yet been possible (for focus on the role aid. all agencies) to work to accepted of Bangladeshi minimum standards such as authorities. SPHERE. Health Cholera and Covid-19 are (…) susceptible of harming the refugee population living in the camps due to congestion, and because access to water and soap is limited.
CASH Restricted modality by the Government Then vouchers / e-vouchers were allowed Then more flexibility was given within programming
Access Limited geographical access, roads, monsoon… (time and resource consuming) Limited mobility for some vulnerable people unable to reach distribution areas, etc. I Metasynthesis DEC Rohingya Refugee Crisis Response I 53
PROCESSES / OBSERVATION / CHALLENGES STRENGTHS MANAGEMENT TENDENCIES
Gaps / unmet Psychosocial support is needed, needs traumatised populations There are issues to resolve regarding livelihoods activities which are restricted by the government “Provision of formal and non- formal education opportunities to the refugee communities also remains a key gap. Government restrictions and lack of priority to this sector have meant permissions are very difficult to obtain and only limited options are available”.
DRR activities Addressing the risks of a ‘second’ Relocations of very exposed HH started late disaster in the making
Humanitarian “While the Government of (…) principles Bangladesh, including the military, is broadly supportive of humanitarian aid to respond CHS 2 to the Rohingya refugee crisis, individual officials sometimes CHS 7 display a lack of knowledge or CHS 8 on occasion even disregard for international humanitarian law CHS 9 and international human rights law. Ongoing engagement with the government, at all levels, is Implementation important to maintain productive dialogue to address existing barriers and build capacity.” “The government has not shared their longer-term plan for the relocation of refugees and if the government changes any priority or modality, it may have an impact on the project. Partners are closely coordinating with clusters and government authorities regarding this matter. There is also a risk to the project and to upholding humanitarian principles through the involvement of the Bangladeshi army in the response. The ISCG is lobbying the government on behalf of the humanitarian community to ensure humanitarian space is maintained and engagement from the army is as limited as possible.” 54 I Appendix I
PROCESSES / OBSERVATION / CHALLENGES STRENGTHS MANAGEMENT TENDENCIES
Role of the The government has stressed Important role, professional military government that the “refugee” situation is a (peace building capacities) temporary one and, as a sign of In charge of camp site management this policy, has put significant limitations on the materials and services that can be delivered to the refugees and host communities Limited access for foreign workers, making it difficult to work (…) consistently with teams Working with the government, following the authority’s CHS 2 regulations, among which the FD7 which allowed foreign funds CHS 7 to be used in the country and CHS 8 FD6 which allowed longer-term activities CHS 9 • delays, bureaucratic processes, the need to shift Implementation some activities
Advocacy Advocating for improved and Ensuring that conditions for the safe, quicker approval processes voluntary, dignified and sustainable meant possibly creating tensions repatriation of Rohingya refugees in and risks for planned activities Bangladesh to Myanmar are met The confusion created by the UNHCR and IOM combined leadership in this crisis didn’t facilitate UNHCR’s advocacy role in favour of refugees’ protection.
DEC Reporting activities were Very flexible donor CHS 2 mentioned as time-consuming, specificities Allowing the reallocation of funds to and of course they are to be CHS 7 new activities if an obstacle occurred added to all the other donor (FD7 approval or overlapping with CHS 9 requirements other orgs.) Changing activities to adapt to the Adaptative monsoon season and cyclone risks management Quick disbursement, and for two Challenges, good years which allows planning ahead practices and Open to discussion recommendations “Two phases were useful when in terms of how in the first phases we gave more adjustments have emphasis on the lifesaving support been made in and in the end phase we resigned the programme as per need and response to new mostly on the protection work as per information and community needs”. changes in the context. I Metasynthesis DEC Rohingya Refugee Crisis Response I 55
PROCESSES / OBSERVATION / CHALLENGES STRENGTHS MANAGEMENT TENDENCIES
National NGO Capacity strengthening needed in Strong pre-existing DRR capacities capacities managing complex emergencies: within Bangladeshi organisations: As Coordination, camp management, a country exposed to frequent natural health, WASH, international risks, national organisations have standards and quality criteria for long been working on preparedness humanitarian interventions and DRR activities High turnover, skilled staff attracted by higher wages in larger or international NGOs and CHS 8 agencies Attractive Depletion of other professional Strong increase in employment Human resources employment sectors (e.g. teachers) opportunities in Cox’s Bazaar area Challenges, good opportunities National or local organisations practices and locally losing their staff to better paid recommendations jobs in larger NGOs or UN agencies in how staff have Students dropping out of schools been supported to do their job. Risks for staff • working conditions, even more during monsoon season • long working hours • risks and threats for female staff Risks when funding decreases and organisations withdraw 56 I Appendix I
APPENDIX 3: RECOMMENDATIONS
SECTOR LEVEL RECOMMENDATIONS FOR EFFECTS / OBSERVATION / RECOMMENDATION FOR REMARKS NGOS / DEC MEMBER CHANGES TENDENCIES THE DEC / TOOLS / CHARITIES DOCUMENTS
Integrative Document and share good Facilitate and encourage and innovative practices dissemination and learning exercises among approaches Promote multi-sector Member Charities approaches within one organisation or between Keep current two-phase different implementers approach to allow DEC CHS 1 (e.g. Integrated health, Member Charities to nutrition and WASH adjust their intervention Effects programming). to priority needs. Challenges, good Use Phase 1 to intervene rapidly while assessing practices and existing needs, resources recommendations and context of intervention in terms of how to develop tailored activities in Phase 2. activities and innovations Women’s Hiring more female staff, Adapting donor have addressed empowerment at different levels, from the guidelines to encourage community outreach level gender balance in staff identified needs. to management level. hiring
Needs remain Design activities that Adapting donor Link in terms of mainstream protection guidelines including protection early-on emphasis on the and safety in importance of protection camps I Metasynthesis DEC Rohingya Refugee Crisis Response I 57
SECTOR LEVEL RECOMMENDATIONS FOR EFFECTS / OBSERVATION / RECOMMENDATION FOR REMARKS NGOS / DEC MEMBER CHANGES TENDENCIES THE DEC / TOOLS / CHARITIES DOCUMENTS
Huge pressure Design activities that Adapting donor Need for on a limited mainstream environmental guidelines, reporting a global environment considerations early-on documents and environmental evaluation criteria to policy / Develop lessons learned include environmental guideline from this intervention footprint reduction to prevent on how to operate in and reduce extremely cramped camp Include environmental environmental settings criteria in the impacts within assessment and due refugee camp diligence carried out with CHS 3 settings new/renewed Member Charitieships Discussions between other Environmental Use the upcoming review humanitarian to seek out opportunities management donors to to green the Single Form Challenges, good discuss practices and Continue to encourage challenges and lesson sharing opportunities recommendations on environmental of in terms of mainstreaming amongst environmental how natural DEC Member Charities mainstreaming constraints and Link environmental impact have been managed. WASH in Document and share good Keeping the same constrained practices flexibility / adaptiveness regarding activity environments / Rely on coordination programming, in order to Health risks mechanisms and allow Member Charities communications between to reorient planned stakeholders, especially activities depending on at camp level, to avoid other actors / on context duplications, overlapping, change, etc. gaps and health risks
Towards a Consider long- term Assess identified crisis Advocacy role protracted solutions at the beginning to anticipate if it will be for UNHCR / refugee crisis a long-term crisis or ICVA / OCHA not, and adapt requests Political accordingly (stronger CHS 3 constraints involvement of local / influence capacities, etc.) on the exit Exit strategy strategies Identify which donor has Challenges, good funded for DEC Member practices and Charities intervention recommendations after the DEC funding ended and, if possible, in terms of how develop synergies for post-intervention long-term crisis. has been anticipated and Handing- Develop an exit strategy For a long-term crisis, Channelling a over to local at the latest at the end consider proposing a larger portion managed. organisations of Phase 1 / beginning of phase 3 implemented by of funding phase 2. national organisations to national or societies only; organisations with limited support rather than from DEC member funding organisations. intermediaries 58 I Appendix I
SECTOR LEVEL RECOMMENDATIONS FOR OBSERVATION / RECOMMENDATION FOR REMARKS STAKEHOLDERS NGOS / DEC MEMBER TENDENCIES THE DEC / TOOLS / CHARITIES DOCUMENTS
Multiple Encouraging coordination communication and systems information sharing were not between DEC Member Charities. However, adding connected and another layer of specific often shared DEC coordination would contradictory increase the burden CHS 6 information on NGOs, rather than facilitating their work. Coordination Challenges, good practices and recommendations in terms of how Challenges in Advocacy at different the coordination communication levels, according to and the organisations’ has been handled. coordination mandate. Discussions at international, national with the but also at regional government level, notably through local organisations with whom the dialogue with national authorities is much more effective and straightforward.
Partnership Clarify what INGOs are Ensuring DEC Member Localisation: between seeking in a partnership: a Charities build and channelling a CHS 3 international local leadership or a local maintain strong larger portion and local service provider? partnerships locally, not of funding only opportunistically but to national CHS 6 organisations in the long-term organisations Assess local partner rather than Local capacities capacity and provide funding Challenges, good sufficient support for intermediaries partners in implementing a practices and large-scale response recommendations in terms of how Local Taking advantage of the Ensuring capacity building CHS strong skills Bangladeshi is done by DEC Member International capacities SPHERE organisations have in DRR Charities with their organisations have / preparedness activities, partners engaged with local while reinforcing their capacities in managing partners complex emergencies involving multiple sectors, including quality and accountability methods I Metasynthesis DEC Rohingya Refugee Crisis Response I 59
SECTOR LEVEL RECOMMENDATIONS FOR OBSERVATION / RECOMMENDATION FOR REMARKS STAKEHOLDERS NGOS / DEC MEMBER TENDENCIES THE DEC / TOOLS / CHARITIES DOCUMENTS
Communication Document and share good Facilitate and encourage with practices dissemination and learning communities exercises among Member Charities When possible, communicate with communities through CHS 4 different channels: local media (radio, TV, etc.); CHS 5 mobile network operators (if authorized); technology providers and software Populations developers; Art and theatre Challenges, good groups practices and recommendations Accountability CHS / complaint SPHERE in terms of how and feedback the different mechanisms Quality & population Accountability COMPASS groups have been involved. One High levels of Include protection priority focus insecurity and activities concerning to be included occurrence of gender-based violence at gender-based project launch (Lighting in – utilization camps, locks to latrines) of feedback violence with the involvement of the communities in order to (Process & understand their practices content) and uses.
Tension Include host communities between in needs assessments and refugees extend support to them. and host communities 60 I Appendix I
SECTOR RECOMMENDATIONS FOR LEVEL PROCESS / OBSERVATION / RECOMMENDATION FOR NGOS / DEC MEMBER REMARKS MANAGEMENT TENDENCIES THE DEC CHARITIES / TOOLS / DOCUMENTS
Facing a huge Document and share good Facilitate and encourage With more refugee crisis, practices dissemination and learning crises with continuous exercises among Member potentially new arrivals Charities happening in urban contexts for months in a (although limited space Initiate specific research this was not) on how to operate in where space is extreme camp settings limited.
CHS 2 Initial services Provide more capacity CHS building to staff in did not meet SPHERE CHS 7 international standards and quality CHS 8 quality criteria Quality & Accountability CHS 9 standards in humanitarian COMPASS aid. Implementation Challenges, good DRR activities practices and started late recommendations in terms of Role of the Assessing and anticipating how activities government risks related to blockages from the government have been implemented, with Advocacy Engage the government Contribute to macro level a specific focus with continuous advocacy, advocacy through the UK or at least joint positioning, government for a faster on the role of to streamline and approval process from the Bangladeshi harmonise the potential the government (e.g. FD7 authorities. changing shifts in policy process in Bangladesh and regulations (e.g. FD7 for Member Charities, approvals in Bangladesh). partners and wider international response actors). Consider “advocacy” as an activity that can be funded when relevant to the context of intervention, for NGOs that have that type of mandate I Metasynthesis DEC Rohingya Refugee Crisis Response I 61
SECTOR RECOMMENDATIONS FOR LEVEL PROCESS / OBSERVATION / RECOMMENDATION FOR NGOS / DEC MEMBER REMARKS MANAGEMENT TENDENCIES THE DEC CHARITIES / TOOLS / DOCUMENTS CHS 2 DEC Keep current flexibility specificities and proactive DEC CHS 7 management. CHS 9 Fund a capacity building organisation that is able to conduct on-site training, Adaptative operational research, real-time evaluations management - and coaching/support to DEC Member Charities Challenges, good (learning partner). practices and DEC external evaluation recommendations may cover more context in terms of how relevant to project? Adding one point on their current adjustments M&E system: adding have been made Iterative Evaluations with in response to Feedback Sessions. new information Timing of the review so as and changes in to inform phase 2 context.
CHS 8 National NGO When possible, prioritize Link with the H2H capacities partnerships with local initiative to facilitate organisations rather than human resources capacity hiring local resources. building such as training Human on SPHERE standards. Include specific activities resources for strengthening local HR Challenges, good capacities? practices and Attractive recommendations employment in terms of how opportunities staff have been locally supported to do their job. 62 I Appendix I
APPENDIX 4: REFERENCES
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Le Monde.fr. 2020. « Des « Rohingyas au Myanmar: un UNHCR, “Global Trends, Forced réfugiés rohingya internés sur régime d’apartheid ». Amnesty Displacement in 2018”, June une île submersible du golfe International France, November 2019. du Bengale », 5 mai 2020. 2020. Available at : https:// Available at : https://www. www.amnesty.fr/conflits-armes- UNHCR, « UNHCR lemonde.fr/international/ et-populations/actualites/ PROTECTION SUPPORT article/2020/05/05/des- myanmar-apartheid. MISSION COX’S BAZAR, refugies-rohingya-internes-sur- BANGLADESH », June 2018. « Rohingyas: un premier pas vers une-ile-submersible-du-golfe- Various planning and reporting du-bengale_6038702_3210.html. la justice ». Amnesty France, October 2018. Available at : documents from 13 DEC Member « Myanmar. Le gouvernement https://www.amnesty.fr/conflits- Charities (Initial phase 1 and n’a pas pris les mesures de armes-et-populations/actualites/ 2 planning documents as well protection des Rohingyas des-rohingyas-onu-justice. as different reporting phases ordonnées par une juridiction documents including the end of internationale ». Amnesty Sanderson, David, Dipankar programme reports for each NGO) France, May 2020. Available at: Patnaik, et Kira Osborne. « Nepal https://www.amnesty.org/fr/ Earthquakes Appeal Meta- latest/news/2020/05/myanmar- Synthesis », 54. government-fails-to-protect- Sanderson, David, et Ben rohingya-after-world-court- Ramalingam. « NEPAL order/. EARTHQUAKE RESPONSE: « Myanmar: Ordonnance de Lessons for Operational la CIJ visant la protection des Agencies », January 2019. Rohingyas ». Human Rights Tanyang, Gaynor and Shirley Watch, January 2020. Available Bolaños, “ROHINGYA CRISIS at : https://www.hrw.org/fr/ APPEAL Mid-Term Evaluation news/2020/01/23/myanmar- Report of Age International”. ordonnance-de-la-cij-visant-la- protection-des-rohingyas. Tearfund, “Emergency Appeal for people fleeing Myanmar – Dec Obrecht, Alice « HEM 2018 External Evaluation Bangladesh - Gestion et programmation - Phase II: April 2018 to 30 adaptatives : la perspective September 2019”. humanitaire ». Groupe URD, March 2019. Available at : United Nations High https://www.urd.org/fr/ Commissioner for Refugees, revue_humanitaires/gestion-et- “Compilation Report Universal - programmation-adaptatives-la- Periodic Review: 3rd Cycle, 30th perspective-humanitaire/ session”, 2018.
Plan International, “External UNHCR, « Bangladesh/Refugee evaluation. Plan International Response – COVID 19 Response UK’s DEC funded response to / 15-31 May 2020 », May 2020. the Rohingya refugee crisis in Available at: https://reliefweb. Bangladesh - DEC Phase II:May int/sites/reliefweb.int/files/ 2018 to June 2019”. resources/76747.pdf. 64 I Appendix I DISASTERS EMERGENCY COMMITTEE Ground Floor 43 Chalton Street London NW1 1DU Tel: 020 73 87 020 0 www.dec.org.uk
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