1 kermitflevo UNHCR IOUA FRAMEWORK FOR CONFLICT-SENSITIVE PROGRAMMING IN IRAQ This report is the outcome of joint efforts by UN agencies and NGOs, including COOPI, Italian Consortium of Solidarity, Life, Médecins du Monde, Mercy Hands, NGO Coordination Committee in Iraq, Ockenden International, Relief International, Terre des Hommes (Italia), UNAMI, UNAMI Human Rights Office, UNHCR, UNOPS and IOM. UNHCR, as Coordinator of Cluster F, facilitated the process of information and experience sharing among these organizations. This report is work in progress and will be updated as appropriate within the framework of the Protection Outcome Team. This report would never have been produced without the valuable contributions of Ali Chahine (Independent Consultant), Arkady Divinskii (UNAMI), Alan Fellows (UNAMI), Christopher Gegenheimer (UNHCR), Sigrid Gruener (Relief International), Greg Hansen (Independent Consultant), Benoîte Martin (Independent Consultant), Daunia Pavone (Consultant), Rafid Saleh (Mercy Hands) and Ivana Vuco (UNAMI HRO). The inclusion of information in this report does not constitute an endorsement of the information or views of third parties. Neither does such information necessarily represent statements of policy or views of UNHCR or the United Nations. United Nations High Commissioner for Refugees Iraq Operation Amman, December 2007 1 TABLE OF CONTENTS LIST OF ABBREVIATIONS .................................................................................4 DEFINITIONS OF TERMS....................................................................................6 INTRODUCTION ..................................................................................................8 I. BACKGROUND TO THE CONFLICTS IN IRAQ ........................................10 1. What Constitutes Conflict in Iraq? ................................................................................................. 10 a. Sectarian violence .......................................................................................................................... 11 b. Violence targeting minorities......................................................................................................... 12 c. Insurgency and counter-insurgency................................................................................................ 12 d. Organized crime............................................................................................................................. 13 e. Domestic violence.......................................................................................................................... 13 2. Causes of Violence............................................................................................................................. 13 a. Prolonged political vacuum............................................................................................................ 13 b. Weak law enforcement and justice system..................................................................................... 14 c. Redress for past injustice ............................................................................................................... 14 3. “Conflict Promoters”........................................................................................................................ 14 4. Affected Populations......................................................................................................................... 15 5. “Peacemakers” .................................................................................................................................. 16 6. Capacities for Peace.......................................................................................................................... 17 II. ACTORS AND ACTIONS IN CONFLICT MANAGEMENT .........................18 1. Introduction....................................................................................................................................... 18 2. Actors................................................................................................................................................. 18 a. Track I............................................................................................................................................ 18 b. Track II........................................................................................................................................... 18 c. Track III ......................................................................................................................................... 19 3. Non-violent Actions of Conflict Management ................................................................................ 19 a. Conflict Settlement......................................................................................................................... 19 b. Conflict Resolution ........................................................................................................................ 19 c. Conflict Transformation................................................................................................................. 19 4. Nature of Conflict Management ...................................................................................................... 20 5. Summary of Actions ......................................................................................................................... 20 6. Summary of Actors and Measures ..................................................................................................20 7. Levels of Conflict Intensity............................................................................................................... 21 8. Third Party Intervention.................................................................................................................. 21 9. Stages of Conflict Escalation............................................................................................................ 23 10. Conflict De-Escalation ................................................................................................................. 24 III. IMPLEMENTING CONFLICT MANAGEMENT ACTIVITIES...................27 1. Working to Achieve Mutually Acceptable Settlement to Conflict................................................ 27 a. Conflict settlement ......................................................................................................................... 27 2 b. Actors............................................................................................................................................. 27 c. Important Qualifications and Moving Beyond Conflict Settlement............................................... 28 2. Resolving Conflict ............................................................................................................................. 29 a. Conflict resolution.......................................................................................................................... 29 b. Actors............................................................................................................................................. 29 c. Activities ........................................................................................................................................ 30 3. From Solving Issues to Transforming Perceptions ........................................................................ 30 a. Conflict transformation .................................................................................................................. 30 b. Actors............................................................................................................................................. 31 c. Activities ........................................................................................................................................ 31 4. Summary Table: A Planning Tool for Conflict Resolution and Conflict Transformation Interventions ............................................................................................................................................... 32 5. Recommendations for Conflict Resolution and Transformation Projects................................... 35 IV. MAINSTREAMING CONFLICT RESOLUTION PRACTICES INTO AID AND DEVELOPMENTAL WORK.......................................................................35 1. Why mainstreaming? ..................................................................................................................... 35 2. The Seven Lessons......................................................................................................................... 36 3. Implications: Lessons from reconciliation and conflict resolution studies..................................... 38 4. Approaches for conflict resolution practices.................................................................................. 39 ANNEX 1: THE REFLECTING ON PEACE PRACTICE PROJECT ..................42 ANNEX 2: COEXISTENCE QIPS.......................................................................54 ANNEX 3: “IMAGINE COEXISTENCE” - PROJECT DESCRIPTION AND EVALUATION.....................................................................................................58 ANNEX 4: OVERVIEW OF CONFLICT SETTLEMENT INITIATIVES IN IRAQ.63 ANNEX 5: OVERVIEW OF CONFLICT RESOLUTION PROJECTS .................68 ANNEX 6: OVERVIEW OF CONFLICT TRANSFORMATION PROJECTS.......71