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PROTECTION from XENOPHOBIA an Evaluation of UNHCR’S Regional Office for Southern Africa’S Xenophobia Related Programmes

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PROTECTION from XENOPHOBIA an Evaluation of UNHCR’S Regional Office for Southern Africa’S Xenophobia Related Programmes XENO © UNHCR / James Oatway PH OBIA PROTECTION FROM XENOPHOBIA An Evaluation of UNHCR’s Regional Office for Southern Africa’s Xenophobia Related Programmes Written by: Jean Pierre Misago, Iriann Freemantle & Loren B. Landau The African Centre for Migration and Society, University of Witwatersrand 1 PROTECTION FROM XENOPHOBIA An Evaluation of UNHCR’s Regional Office for Southern Africa’s Xenophobia Related Programmes Written by: Jean Pierre Misago, Iriann Freemantle & Loren B. Landau The African Centre for Migration and Society University of Witwatersrand © UNHCR, February 2015 ACKNOWLEDGEMENTS This evaluation reviews the attempts of a UNHCR office to protect refugees and asylum-seekers from violent and recurring xenophobic attacks in a country that has a long history of “othering” within its society. It does more than just measure the impact and efficacy of four programmes implemented to mitigate xenophobia in South Africa. It explores reasons why traditional awareness raising programmes have not worked. It is also a clarion call to UNHCR to globally reconsider its approach to xenophobia which has emerged as a well-documented deterrent to refugees and asylum seekers being able to make a living and coexist peacefully in their cities and towns of exile. If refugees have to live in constant and real fear of persecution in their places of refuge, what protection has actually been provided? As the evaluation reports, xenophobia has social, political and economic roots that are closely intertwined. Yet no matter how complex, every story has a starting point. This evaluation does too. The beginning is worth acknowledging and appreciating. It was initiated at the behest of the Regional Representative not only to measure the efficacy of ongoing xenophobia related programmes in the UNHCR Regional Office for South Africa (UNHCR ROSA) but also to receive clear recommendations that are based on best practices in xenophobia related programming. The curiosity and courage to start this process of research and evaluation is thankfully recognised. The UNHCR ROSA staff and their South African partners who implemented the programmes are also gratefully acknowledged. Amongst them are Alphonse Munyaneza and Tina Ghelli from UNHCR ROSA and the staff from the Xaveri Movement in Mamelodi, the Agency for Refugee Education, Skills Training & Advocacy (ARESTA), Thetha FM Radio Station and the Displaced and Migrant Persons Support Programme (DMPSP). They are professionals who found themselves in a difficult and disturbing situation without a clear map or resources to change it. To date, there are not many guidelines and “good practice” documents to steer xenophobia related programming. In this vacuum, these dedicated humanitarians were creative and bold and explored new, interesting partnerships. Some were more effective than others. The authors of this report, Jean-Pierre Misago, Loren Landau and Iriann Freemantle, and their research teams also deserve credit for gathering the data to try to measure the effectiveness of these programmes. Of the good, effective examples in this report, one of these alliances is particularly notable and stands as a best practice because it draws upon proven leaders in the community; it relies on existing structures and, in doing so, provides a more sustainable solution. In the period this evaluation covers, UNHCR ROSA established a relationship with the South African Police Service (SAPS) in responding to xenophobic attacks. This was possible because of the commitment to justice and dedication to peaceful coexistence of General Chippu of SAPS. General Chippu led his team, notably including Captain Modika, to respond at all hours to violent incidents targeting refugees on countless occasions. Their contribution to the overall efforts to protect refugees and asylum-seekers is worthy of particular recognition. MaryBeth Morand Senior Policy & Evaluation Officer Policy Development & Evaluation Service UNHCR 5 TABLE CONTENTS ACRONYMS ........................................................................................................................................................................................9 EXECUTIVE SUMMARY .....................................................................................................................................................................10 KEY FINDINGS AND CONCLUSIONS ....................................................................................................................................................10 PRIMARY RECOMMENDATIONS ..........................................................................................................................................................12 1 INTRODUCTION ..............................................................................................................................................................................13 1.1 OVERVIEW........................................................................................................................................................................................13 1.2 EVALUATION OBJECTIVES AND QUESTIONS ................................................................................................................................14 1.3 PROGRAMMES SELECTED FOR EVALUATION ..............................................................................................................................15 1.4 PRIMARY FINDINGS AND CONCLUSIONS .....................................................................................................................................15 1.5 STRUCTURE OF THE REPORT .........................................................................................................................................................15 2 OPERATIONAL CONTEXT: XENOPHOBIA IN SOUTH AFRICA – SCOPE, NATURE AND RESPONSES ...................................................16 2.1 INTRODUCTION ...............................................................................................................................................................................16 2.1.1 Overview ................................................................................................................................................................................16 2.1.2 Conceptual understandings of xenophobia .....................................................................................................................17 2.1.3 Xenophobia: A phenomenon of global dimensions .........................................................................................................17 2.2 XENOPHOBIA IN SOUTH AFRICA: SCOPE, NATURE AND RESPONSES ......................................................................................18 2.2.1 Scope ......................................................................................................................................................................................18 2.2.2 Xenophobic manifestations in South Africa ...................................................................................................................20 2.2.3 Considering explanations for violence: Causes and triggers ......................................................................................22 2.2.4 Responding to xenophobia in South Africa ....................................................................................................................25 3 EVALUATION METHODOLOGY ........................................................................................................................................................32 3.1 GENERAL METHODOLOGICAL APPROACH: PROCESS AND IMPACT EVALUATION ..................................................................32 3.2 RESEARCH DESIGN .......................................................................................................................................................................33 3.2.1 Qualitative approach ..........................................................................................................................................................33 3.2.2 Sources of data and information .....................................................................................................................................33 3.2.3 Sampling ..............................................................................................................................................................................33 3.2.4 Data collection and analysis .............................................................................................................................................34 3.2.5 Limitations ...........................................................................................................................................................................34 6 4 FINDINGS .......................................................................................................................................................................................35 4.1 ADDRESSING XENOPHOBIA IN SOUTH AFRICA: STRATEGIC APPROACH, MANDATE AND PARTNERSHIPS ........................35 4.1.1 UNHCR ROSA’s strategic approach to addressing xenophobia in South Africa ..........................................................35 4.1.2 Xenophobia and the protection mandate .......................................................................................................................38 4.1.3 Partnerships and collaborations ......................................................................................................................................40
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