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Ngos in the Provision of Relief and Rehabilitation Assistance: Case Study 3 - Northern Ethiopia and Eritrea

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THE CHANGING ROLE OF NGOS IN THE PROVISION OF RELIEF AND REHABILITATION ASSISTANCE: CASE STUDY 3 - NORTHERN ETHIOPIA AND ERITREA #di Library Overseas Development Institute FOR REFERENCE ONLY Working Paper 76 I«8u2te3 of ODI reMreh presented in pi^Uininary form for disciission and critical comment ODI Working Papers 33: Exchange Rates and Structural Adjustment, Tony Killick, 1990, £3.50, ISBN 0 85003 128 1 34: Markets and Governments in Agricultural and Industrial Adjustment, Tony Killick, 1990, £3.50, ISBN 0 85003 129 X 35: Financial Sector Policies in the Adaptive Economy, Tony Killick, 1990, £3.50, ISBN 0 85003 131 1 36: Problems and Limitations of Adjustment Policies, Tony Killick, 1990, ISBN 0 85003 132 X* 37: Judging Success: Evaluating NGO Income-Generating Projects, Roger Riddell, 1990, £3.50, ISBN 0 85003 133 8 38: ACP Export Diversincation: Non-Traditional Exports from Zimbabwe, Roger Riddell, 1990, £3.50, ISBN 0 85003 134 6 39: Monetary Policy in Kenya, 1967-88, Tony Killick and F M Mwega, 1990, £3.50, ISBN 0 85003 135 4 40: ACP Export Diversincation: Jamaica, Kenya and Ethiopia, Christopher Stevens, 1990, £3.50, ISBN 0 85003 136 2 41: ACP Export Diversification: The Case of Mauritius, Matthew McQueen, 1990, £3.50, ISBN 0 85003 137 0 42: An Econometric Study of Selected Monetary Policy Issues in Kenya, F M Mwega, 1990, £3.50, ISBN 0 85003 142 7 43: Differences in Econometric Performance between Franc Zone and other Sub- Saharan African Countries, Christopher E Lane and Sheila Page, 1991, £3.50, ISBN 085003 148 6 44: Monetary Policy Effectiveness in Indonesia, 1974-1900, Christopher E Lane, David C Cole and Betty F Slade, 1991, £3.50, ISBN 0 85003 150 8 45: Monetary Control in Ghana: 1957-1988, Nil Kwaku Sowa, 1991, £3.50 ISBN 0 85003 152 4 46: The IMF in the 1990s: Forward to the Past or Back to the Future, Graham Bird. 1991, £3.50, ISBN 0 85003 153 2* 47: What Can We Know About the Effects of IMF Programmes?, Tony Killick, Moazzam Malik and Marcus Manuel, 1991, £3.50, ISBN 0 85003 154 0* 48: Country Experiences with IMF Programmes in the 1980s, Tony Killick with Moazzam Malik, 1991, £3.50, ISBN 0 85003 155 9* 49: Evaluating the Impact of NGOs in Rural Poverty Alleviation: India Country Study, Mark Robinson, 1991, £5.00, ISBN 0 85003 157 5* 50: Evaluating the Impact of NGOs in Rural Poverty Alleviation: Bangladesh Country Study, Sarah White, 1991, £5.00, ISBN 0 85003 158 3 51: Evaluating the Impact of NGOs in Rural Poverty Alleviation: Uganda Country Study, John De Coninck, 1991, £5.00, ISBN 0 85003 159 1 52: Evaluating the Impact of NGOs in Rural Poverty Alleviation: Zimbabwe Country Study, Ann Muir, 1991, £5.00, ISBN 0 85003 160 5 53: Environmental Change and Dryland Management in Machakos District, Kenya: Environmental Profile, edited by Michael Mortimore, 1991, £4.a), ISBN 0 85003 163 X 54: Environmental Change and Dryland Management in Machakos District, Kenya: Population Profile, Mary Tiffen, 1991, £4.00, ISBN 0 85003 164 8 55: Environmental Change and Dryland Management in Machakos District, Kenya: Production Profile, edited by Mary Tiffen, 1991, £4.00, ISBN 0 85003 166 4 WORKING PAPER 76 THE CHANGING ROLE OF NGOS IN THE PROVISION OF RELIEF AND REHABILITATION ASSISTANCE: CASE STUDY 3 - NORTHERN ETHIOPIA AND ERITREA John Borton May 1994 ISBN 0 85003 210 5 Overseas Development Institute Regent's College Inner Circle, Regent's Park London NW1 4NS © Overseas Development Institute 1994 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without the prior written permission of the publishers. Acknowledgements The author would like to express his thanks to all those who have contributed to the study through interviews and the provision of information. Particularly, thanks are due to Gayle Smith (DIA), Nick Southern and Julius Holt (SCF), Paavo Fearm (LWF), Robin Needham (CARE), Brian Nugent (Concern), Jim Borton, Ben Parker and Deborah Hicks (UNEPPG), Bill Pearson (USAID), Gus O'Keeffe, Hagos Araya and Liz Stone (CRDA), Rainer Baudeldistel (ICRC), Anders Fange (Redd Bama), Arild Jabcobsen (ERD-Asmara), Martinne Billanou (EIAC-Asmara), Susan Watkins (WFP) and Fiona Meehan (REST) and Beriiane Tesfay. Preface This case study is one of a series being prepared as part of a larger study on the changing role of non-governmental organisations (NGOs) in the provision of relief and rehabilitation assistance. It is now widely recognised that NGOs play a much enhanced role in relief and rehabilitation operations compared to ten or fifteen years ago. However, the rate of growth of NGOs in this field of activity and the factors contributing to such growth have not previously been studied in a comprehensive manner. The primary objectives of the overall study, which is funded by the UK Overseas Development Administration, are therefore to: a) quantify the relief and rehabilitation resources handled by NGOs since 1979, so as to analyse both the extent to which the role of NGOs undertaken in the provision of such assistance has increased and the ways in which the functions undertaken by NGOs have changed; b) make a preliminary examination of the practical and policy implications of the increased role of NGOs in relief operations both for donor organisations that use NGOs as channels for the provision of relief and rehabilitation assistance and for the NGOs themselves. Three of a series of case studies are to be published in the ODI Working Paper series. As well as the present study, the two others are the role of NGOs in the provision of relief and rehabilitation to Afghan refugees in Pakistan and within Mujahideen-controlled areas in Afghanistan during the period 1979 to 1992, and the provision of relief and rehabilitation to Cambodian refugees in Thailand and within Cambodia itself during the period 1979 to 1992. In many relief and rehabilitation operations, the role and contribution of NGOs are pooriy understood. Among the principal factors contributing to this situation are the large number of agencies involved, the frequent lack of centralised sources of information, the complexities of the different types of resource flows through the system and the relationships between the various organisations involved and, in some cases, the deliberate secrecy of agencies involved in activities that are either covert and/or threaten the safety of agency personnel. The purpose of the individual case studies, therefore, is to examine the role and contribution of NGOs in the provision of assistance in a selection of the largest relief operations to have taken place since 1979. The case studies focus on key aspects of NGO involvement in such operations, i.e. changes over time in the number concerned, the different characteristics, the range and scale of activities undertaken and their relationship with other organisations involved in the operation, in particular UN agencies, donor organisations, government agencies, and the Red Cross Movement. Given the involvement of many different NGOs in relief operations, coordination is an important activity and so the studies also examine the coordination mechanisms which developed within the NGO community. The case studies are not intended to be exhaustive studies of the role of NGOs in the selected relief operations. The highly disparate nature of the data sources and the lack of institutional memory of activities undertaken more than three or four years previously within many organisations involved in the provision of relief and rehabilitation assistance mean that exhaustive studies are difficult and time consuming. In those relief and rehabilitation operations which have been underway for several years, exhaustive studies may simply not be possible. Given the limited time available for the case studies (each involved only a two to three week visit to the countries involved), they can therefore only be regarded as provisional assessments of the role of NGOs in such operations. Neither are the studies intended to assess the impact and effectiveness of the assistance provided by NGOs. Such assessments or evaluations would require much more detailed investigation and involve seeking the views of a sample of the recipients of the assistance provided for either all the NGOs involved or at least a representative sample. Contents Acknowledgements 3 Preface 5 Acronyms 9 Map 1 Map of Ethiopia 11 Map 2 Map of Eritrea, Gonder, Tigray and Wollo 12 1. Introduction and Method 13 2. Background 14 2.1 The Mengistu Regime and its Policies 14 2.2 The Conflicts in the North 18 2.3 The Incidence of Drought 21 2.4 The Complex Emergency of the 1980s 23 3. A Summary of the Response by the International Community 25 3.1 A Summary of the Response Through the Areas Controlled by the Derg 25 3.2 A Summary of the Response in Areas 'Controlled' by the Fronts 34 4. The Respective Roles of the RRC, the UN, the Red Cross Movement and NGOs 40 4.1 The Role of the RRC 40 4.2 The Role of the UN 41 4.3 The Role of the Red Cross Movement 44 4.4 Measuring the Role of the RRC, UN, the Red Cross Movement and NGOs on the Government Side 47 4.5 The Role of NGOs in Areas Controlled by the Fronts 53 5. Activities Undertaken and Issues Faced by NGOs 59 5.1 Activities and Implications of the Use of NGOs as Channels 59 5.2 Ethical Dilemmas and Policy Issues 64 6. NGO Consortia and Coordination Mechanisms 69 6.1 The Christian Relief and Development Association 69 6.2 The Emergency Relief Desk 75 6.3 The Joint Relief Parmership 78 6.4 The Tigray Transport and Agriculture Consortium 82 7.
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