Chapter 4 - Recovering from violent conflict

Peacebuilding: refugees and internally displaced persons (IDPs)

Refugees and internally displaced persons (IDPs)

There is an increasing amount of research that stresses the link between the resolution of forced migration and internal displacement and sustainable peace. Ongoing or protracted exile and displacement signals unresolved conflict issues and undermines peacebuilding processes. It also increases the risk of regional instability if refugees are hosted in neighbouring countries, stemming in part from tensions between refugees and local populations.

Long periods of exile and displacement are a growing challenge for the international refugee protection regime and the international community. The UN Refugee Agency (UNHCR) has outlined three durable solutions for refugees: voluntary repatriation, local integration, or resettlement in a third location. Designed originally with refugees in mind, these solutions have been extended to IDPs, through the Guiding Principles on Internal Displacement. The options are adapted to: return to their former homes, integration at the location they were displaced to, or resettlement to another part of the country.

Support for these solutions extends beyond the humanitarian community and necessarily involves as well development and peacebuilding actors. Durable solutions, in particular repatriation or return, requires a wide range of assistance interventions in order to provide for security, property restitution and conditions for sustainable return – particularly inclusive governance, livelihood and employment generation and social renewal.

Involvement of refugees and IDPs in peacebuilding and development

Despite the acute needs of refugees and IDPs, they are rarely consulted in peace processes. In addition, policy makers and practitioners often overlook the need to target support to host countries and those suffering from protracted displacement, focusing their attention on governments and populations solely within the border of the country of origin and/or in communities with returnees, in the case of internal displacement. Broader regional dynamics should be considered in peacebuilding and development efforts. In addition, research and studies find that early engagement with refugee and displaced populations may contribute to conflict transformation.

Angola serves as a case study for targeted involvement of IDPs in conflict management and peacebuilding processes. Theatre, media and training activities were implemented among IDP groups to facilitate dialogue and trauma healing; to teach peacemaking and non-violent conflict management skills; to engage in discussion of tough issues, such as structural causes of conflict and sustainable development; and to mobilise demand for peace. In Uganda, as well, efforts were made to address the socioeconomic, political and legal problems faced by refugees in protracted exile through the integration of services to refugees into regular government structures and policies. The aim was to move from relief to development. Such programming, however, can be controversial as host countries that are keen on repatriation may fear that it will be mistaken for the promotion of ‘local integration’.

There is some limited research that considers the contributions that refugees can make to peace processes, recovery and peacebuilding in their country of origin. These contributions may result from new skills that they acquire in exile. This recognition has resulted in recommendations that special attention be paid to providing refugees and IDPs with training opportunities, such as language training, vocational training, professional development and peace education. Recent research advocates that the UN Peacebuilding Commission should take up these issues and mainstream consideration for refugees and IDPs in peace processes and peacebuilding efforts.

Loescher, G., Milner, J., Newman, E., and Troeller, G., 2007, 'Protracted Refugee Situations and the Regional Dynamics of Peacebuilding', Conflict, Security and Development, vol. 7, no. 3, pp. 491-501
What are the links between the prolonged presence of refugee populations and fragile states? How can protracted refugee situations contribute to conflict, instability and effective peacebuilding? This article explores the challenges posed by protracted refugee situations to human rights and security. The question of refugees has been largely absent from the international political agenda and recent debates on peacebuilding. As a result, protracted refugee situations have mainly become the domain of humanitarian agencies.
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Brookings-Bern Project on Internal Displacement, 2007, 'Addressing Internal Displacement in Peace Processes, Peace Agreements and Peace-Building', Brookings-Bern Project on Internal Displacement
How can internal displacement best be integrated into peace processes, peace agreements and peacebuilding? This report contends that resolving displacement is strongly connected to achieving peace, especially in cases of large-scale displacement. Assisting displaced people to return and reintegrate has the potential both to address the root causes of conflict and to prevent further displacement. Durable solutions to displacement should form an integral part of effective peacebuilding.
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Utterwulghe, S., 2004, 'Conflict Management in Complex Humanitarian Situations: Peacemaking and Peacebuilding Work with Angolan IDPs', Journal of Refugee Studies, vol. 17, no. 2, pp. 224-244
What is the role of internally displaced people (IDPs) in peacemaking and peacebuilding in complex humanitarian situations? This report analyses the strategies used by the Luanda-based Centre for Common Ground (CCG) and IDPs in conflict resolution in Angola. IDPs must play a central role in conflict management and the construction of peace if national reconciliation is to be sustainable. Peacemaking and peacebuilding that target and involve IDPs must occur before, during and after war-related complex humanitarian situations.
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Kaiser, T., 2005, 'Participating in Development? Refugee Protection, Politics and Developmental Approaches to Refugee Management in Uganda', Third World Quarterly, vol. 26, no. 2, pp. 351-367
This article examines the ‘Self-Reliance Strategy’ implemented by the Government of Uganda and UNHCR for long-term Sudanese refugees in Uganda, which seeks to move from a relief to a development approach. However, the prospects for success are limited by ongoing conflict in northern Uganda and the lack of rights of long-term exiles – in particular, freedom of movement. Developmental approaches must go beyond a narrow focus on material needs and incorporate an explicit focus on refugee protection.
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Refugee warriors

The term ‘refugee warriors’ refers to organised elements of exiled communities engaged in armed campaigns against their countries of origin. Armed refugee warriors are usually intermingled with a refugee population – and challenge the conventional perception of refugees as victims. Their presence, particularly in refugee camps, has presented a tremendous challenge for humanitarian efforts. Humanitarian workers have been criticised for providing armed elements in camps with aid, as occurred in the case of the armed militia operating from the refugee camps in Eastern DRC in the aftermath of the Rwandan genocide.

Recent research has also found that forced migration contexts are fertile grounds for mobilisation into violence. These contexts involve the loss of normal institutional anchors and produce feelings of powerlessness and exclusion. In addition, where refugees have been created by conflicts involving identity discrimination, camps can become prime places for the development of group hostilities and recruitment into militant groups. Such research has also extended to the exploration of returnees who were part of a military entity while in exile and return as part of this group – termed ‘returnee warriors’. There is a risk that these returnees may not reintegrate peacefully but rather continue to engage in militant action.

Harpviken, K. B., 2008, 'From “Refugee Warriors” to “Returnee Warriors”: Militant Homecoming in Afghanistan and Beyond', Global Migration and Transnational Politics, Working Paper, no. 5, George Mason University, Fairfax County, Virginia
Why do some refugees, upon return to their countries of origin, engage in violent action? This paper assumes that in some refugee situations a significant share of returnees engage in militant action. It examines three sets of explanatory factors (enabling environment, ideology and organisation) in order to contribute to an expanding analytical framework for refugee warrior phenomena, and to identify an agenda for future research.
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Kahn, C., 2008, 'Conflict, Arms, and Militarization: The Dynamics of Darfur’s IDP Camps', Sudan Working Paper, no. 15, Small Arms Survey, Graduate Institute of International and Development Studies, Geneva
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For further discussion and resources on the mobilisation into violence of children and youth in refugee/IDP camps, see children and youth in conflict-affected areas.

Reintegration

It is increasingly acknowledged that in order for voluntary repatriation/return to represent a durable solution, the conditions necessary for successful reintegration must be supported. These conditions span a range of activities, including restoration of infrastructure and services; promotion of housing and property rights; human rights monitoring; livelihoods and employment generation; and efforts to rebuild social capital and social cohesion. These activities in turn require the active involvement of a range of actors beyond the humanitarian field, extending to development and peacebuilding actors. In addition, an important component of sustainable reintegration is the willingness and capacity of the state to reassume responsibility for the rights and well-being of all its citizens. As such, interventions may also need to address building the capacity of the state and the development of inclusive governance institutions.

Return and reintegration may be particularly challenging in the context of divided post-conflict societies, where political tensions and inter-group tensions are especially high. In such cases, attention needs to be paid at the outset to the facilitation of inter-group interaction, dialogue and rebuilding trust. Research has found that initiatives that are designed to bring populations together to collaborate around common needs; and that are aimed at broader community development that benefits not just returnees but also all residents of the community can be effective in reducing tensions and resistance to return. They can also create the foundation for the transformation of relationships.

UNHCR, 2004, ‘Handbook for Repatriation and Reintegration Activities’, The Office of the United Nations High Commissioner for Refugees, Geneva
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Fagen, P.W., 2011, ‘Refugees and IDPs after Conflict: Why They Do Not Go Home’, United States Institute of Peace, Washington DC
National and international programmes to return refugees and internally displaced persons (IDPs) to their homes after conflict frequently leave far too many without viable futures. Using Bosnia, Afghanistan, Iraq and Burundi as case studies, this paper argues that the effects of protracted conflict and displacement means that, for many, returning home is not a viable solution. Greater flexibility in determining the best solutions and more investment in alternative and longer-term forms of reintegration are needed.
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The Brookings-Bern Project on Internal Displacement, 2007, ‘When Displacement Ends: A Framework for Durable Solutions’, The Brookings-Bern Project on Internal Displacement
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Haider, H., 2009, ‘(Re)Imagining Coexistence: Striving for Sustainable Return, Reintegration and Reconciliation in Bosnia and Herzegovina’, International Journal of Transitional Justice, vol. 3, no. 1, pp. 91-113
How can international and local actors facilitate the sustainable return of refugees and internally displaced persons (IDPs) to societies that have experienced violent inter-group conflict? What steps can be taken to renew coexistence and rebuild trust in areas of return? This article explores initiatives designed to repair social relationships and provide for durable return in Bosnia and Herzegovina (BiH). It finds that projects designed to promote livelihoods, community development and coexistence concurrently in BiH have been successful in rebuilding trust and facilitating return. In particular, inter-group collaboration around shared goals allowed for a reframing of the ‘other’ and triggered dialogue among former ‘enemies’.
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UNHCR, 2004, ‘Quick Impact Projects (QiPs): A Provisional Guide’, The Office of the United Nations High Commissioner for Refugees, Geneva
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For additional resources on refugees and IDPs, see the early recovery section of this guide.

Additional peacebuilding resources

For resources on monitoring and evaluation of peacebuilding interventions, see monitoring and evaluation of interventions in conflict-affected areas.