Introduction to the Resource Pack

Transcription

1 INTRODUCTION Introduction to the Resource Pack Over the ast decade there has been a growing reaisation that humanitarian assistance sometimes feeds confict rather than aeviates it, and that deveopment aid sometimes exacerbates tensions. This has ed to the deveopment of toos to understand the reationship between programming and confict. This Resource Pack seeks to document current practice, avaiabe frameworks and essons earned. At its heart is the concept of confict sensitivity the notion of systematicay taking into account both the positive and negative impact of interventions, in terms of confict or peace dynamics, on the contexts in which they are undertaken, and, conversey, the impact of these contexts on the interventions (see Chapter 1 for definitions). The first edition of the Resource Pack is the resut of extensive consutations on confict sensitivity undertaken in Kenya, Uganda and Sri Lanka by a consortium of Southern and Northern NGOs, during Input has been received in the form of: extensive mapping of confict sensitive practice in these three countries among deveopment, humanitarian and peace buiding actors discussions with representatives from government, civi society and donors both on the proposed structure and content of the Resource Pack further feedback on various drafts of the Pack. Simiar processes were undertaken beyond these three countries with the headquarters of deveopment, humanitarian and peacebuiding organisations, and experts in the fied of confict prevention. The project has made great efforts to reach out and raise awareness on confict sensitivity, as we as to record indigenous and internationa practice. Through this work and the partnerships it has engendered, the project has provided a bridge between North and South, invoving southern agencies not as mere recipients of confict sensitive knowedge, but as shapers of the confict sensitivity agenda. The partner organisations are gratefu for the feedback they have received, and invite further comments on the current edition. A subsequent edition is envisaged incorporating essons earned and further appications of confict-sensitive approaches. Additiona resources such as a trainers guide to suppement this Resource Pack wi aso be produced. More information on the project progress and activities in Kenya, Uganda and Sri Lanka can be found at: 1. Understanding confict Centra to this Resource Pack and the concept of confict sensitivity is the definition of confict. Confict is an ambiguous concept that takes on different meanings for different groups and in different contexts. In particuar, confict tends to be understood as a negative phenomenon, synonymous with vioence. Within the framework of the Resource Pack, a broader and more positive approach to understanding confict has been adopted: it regards confict as a natura mutidimensiona phenomenon that is typicay indicative of change within society. In this sense, the issue of prevention wi focus primariy on the prevention of vioent confict, or the need to strengthen structures, processes and mechanisms within society that enabe the peacefu and constructive management of differences. Confict occurs when two or more parties beieve that their interests are incompatibe, express hostie attitudes or take action that damages other parties abiity to pursue their interests. It becomes vioent when parties no onger seek to attain their goas peacefuy, but resort instead to vioence in one form or another. Vioent conficts are thus not inevitabe, nor do they happen overnight; confict is a dynamic process, which may take differing forms and run through various stages of escaation and de-escaation, resuting from the compex combination and overap of the various causes of confict (see Chapter 2). The Resource Pack is concerned with the spectrum of confict intensity from structura vioence to vioent confict (see Box 1). BOX 1 The spectrum of confict intensity Confict is a compex term that is often used interchangeaby with vioence. The Resource Pack approach understands confict as a muti-dimensiona socia phenomena 1 essentia to socia change, and transformation. Confict may be vioent or atent; the atter is often referred to as structura vioence. Vioent confict is used to describe acts of open hostiity. In confict theory it is but one stage of a dynamic confict cyce, which may proceed from a situation of tensions, escaation, crisis phase (manifestations of vioence), possiby resuting

2 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction in a staemate or de-escaation. A de-escaation may ead to a settement/resoution and reconstruction/reconciiation, or aternativey to an unstabe peace. Latent confict is used to describe situations of tensions, which may escaate into vioence. One form of atent confict is structura vioence, defined by Gatung to describe situations where unequa, unjust and unrepresentative structures prevent humans from reaising their fu potentia, thus extending the definition of vioence beyond direct physica harm to the organization of society 2. Note: Chapter 2 buids on this spectrum of confict intensity and describes the various causes of confict. 2. About the Resource Pack The Resource Pack is designed for governments, donors and civi society (oca and internationa) invoved in deveopment, humanitarian assistance and peace buiding. It does not assume that the reader has extensive knowedge of confict transformation nor is it an academic discussion of confict and reated concepts. Its primary concern is to provide an understanding of current practice, avaiabe frameworks and essons earned in reation to confict sensitivity. It is a broad umbrea capturing different approaches such as Peace and Confict Impact Assessment (PCIA) and Do No Harm, as we as ess-known organic approaches deveoped by practitioners in the South. In this sense, it does not offer new toos but rather presents broad recommendations on confict-sensitive practice that organisations wi need to further adapt in the ight of their operating context, their needs, and their operationa structures. The Resource Pack is organised in separate stand-aone units and does not need to be read from cover to cover. It is structured as foows: Chapter 1: An Introduction to confict-sensitive approaches to deveopment, humanitarian assistance and peacebuiding provides an operationa definition of confict sensitivity and reated principes. It situates confict sensitivity within the current debates in the fieds of deveopment, humanitarian assistance and peace buiding. Chapter 2: Confict anaysis describes what is in effect the centra component of confict sensitivity. Buiding on a compendium of toos and the essons earned from their appication, the chapter presents key eements of confict anaysis, and guidance on how to undertake it. Chapter 3: Appying confict sensitivity at project and programme eve defines the project cyce, inking the confict anaysis to each constituent step of panning, impementation, monitoring and evauation. It describes how to undertake each step in a confict-sensitive fashion, and the major chaenges faced in doing so. Chapter 4: Integrating confict sensitivity into sectora approaches defines sector-wide approaches and presents a framework for integrating confict sensitivity into the programming cyce. Chapter 5: Institutiona capacity buiding for confict sensitivity recommends processes and strategies for mainstreaming confict sensitivity in impementing organisations and their partners. 3. Acknowedgements The Resource Pack is drawn from diverse sources, incuding organisations that participated in our workshops and mapping process and commented on the various drafts in Kenya, Uganda, Sri Lanka and beyond. We are hugey indebted to these sources for their energy, input and enthusiasm. We are aso gratefu for the guidance and support provided by the Steering Committee and the project donors: Internationa Deveopment Research Centre (IDRC), Canadian Internationa Deveopment Agency (CIDA), The Netherands Ministry of Foreign Affairs (Minbuza), Deutsche Geseschaft für Technische Zusammenarbeit (GTZ) and Styresen för Internationet Utveckingssamarbete (SIDA). Specia thanks are due to the contributors and project team on the Resource Pack: in particuar, Contributors: Christian Barbero, Sarah Bayne, Emery Brusset, Susanna Campbe, Jos de a Haye, and Manuea Leonhardt. Additiona Contributions: Adam Barboet, Rache Godwyn, Maria Lange, Ceine Moyroud, Andrew Sherriff, and Leya-Caude Wereigh. Core Project Team: Adam Barboet, Rache Godwyn, Jos de a Haye, Ceine Moyroud, Eizabeth Mutunga, Rose Othieno, Priyanka Samarakoon, and Leya-Caude Wereigh. Project Team: Africa Peace Forum (APFO) Eizabeth Mutunga and Ambassador Phiip Mwanzia.

3 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction 3 Center for Confict Resoution (CECORE) Betty Mutesa, Freeda Nkuutu, Rose Othieno, and Stea Sabiiti. Consortium of Humanitarian Agencies (CHA) Yameena Mubarak, Priyanka Samarakoon, Jeevan Thiagarajah, and Tanujah Vijeyashanthan. Forum on Eary Warning and Eary Response (FEWER) David Nyheim, Sija Paasiinna, Shey Ross, and Leya-Caude Wereigh. Internationa Aert Adam Barboet, Rocco Bume, Jos de a Haye, Rache Godwyn, Maria Lange, Aberto Masetti-Zannini, Eugenia Piza-Lopez, Andrew Sherriff, and Mihirini Sirisena. Saferword Marie Duboc, Pau Eavis, Hesta Groenewad, Sue Maske, Sue Le Mesurier, and Ceine Moyroud. Copy Editor: Coin Roth Database Programming, Print Production and Web Design: Jez Humbe Graphic Designer: Jane Stevenson 4. Gossary Actors Advocacy Advocacy campaigns Individuas, groups and institutions who: contribute to confict; and / or are affected by confict (in a positive or negative manner); and/or are engaged in deaing with confict. Third party entreaties to externa decision makers and power brokers. Campaigns that raise awareness about particuar issues (eg andmines) or conditions, and aim to bring about poicy changes 3. Beneficiaries Participants in and recipients of interventions by the nationa or internationa community. (A controversia term that some practitioners find objectionabe). Capacities Causes (3 types) Civi Society Confict Confict (Vioent) Confict Prevention Confict sensitivity Actors potentia to affect the context, positivey or negativey. Potentia can be defined in terms of resources, access, socia networks and constituencies, other support and aiances, etc. Factors which contribute to peope s grievances. Causes may be: Structura: pervasive factors that have become buit into the poicies, structures and fabric of a society and which may create the pre-conditions for vioent confict Proximate: factors contributing to a cimate conducive to vioent confict or its further escaation Triggers: singe key acts, events, or their anticipation that wi set off or escaate vioent confict. A domain parae to, but separate from the state and the market, in which citizens freey group together according to their own interests. It can incude for exampe non-governmenta organisations (NGOs), community-based organisations, reigious bodies, professiona associations, trade unions, student groups, cutura societies, etc 4. The resut of parties disagreeing eg about the distribution of materia or symboic resources and acting on the basis of these perceived incompatibiities 5. Resort to psychoogica or physica force to resove a disagreement. Actions, poicies, procedures or institutions intended to avoid the threat or use of armed force and reated forms of coercion by states or groups to sette poitica disputes, or to avoid the recurrence of vioent confict 6. This means the abiity of your organisation to: understand the context in which you operate; understand the interaction between your intervention and the context; and act upon the understanding of this interaction, in order to avoid negative impacts and maximise positive impacts.

4 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction Note: the word context is used rather than confict to make the point that a socio-economic and poitica tensions, root causes and structura factors are reevant to confict sensitivity because they a have the potentia to become vioent. Confict is sometimes erroneousy confused with macro-poitica vioence between two warring parties (as with a civi war between a nationa government and a non-state actor). Context The operating environment, which ranges from the micro to the macro eve (eg community, district / province, region(s), country, neighbouring countries). For the purposes of this Resource Pack, context means a geographic or socia environment where confict exists (see the Introduction for a description of the various eements in the confict spectrum) and is comprised of actors, causes, profie and dynamics. Deveopment Donor Dynamics Evauation Evauation (confict sensitive) Fungibiity Goas Government Long-term efforts aimed at bringing improvements in the economic, poitica and socia status, environmenta stabiity and the quaity of ife of a segments of the popuation 7. An institution that provides grants and other forms of financia contribution or assistance in kind to organisations such as governments, and civi society (oca and internationa). A donor may be a biatera agency (eg CIDA in Canada), a mutiatera agency (e.g. the Word Bank or the UN) or a phianthropic organisation (e.g. foundations) 8. Some NGOs and INGOs periodicay assume a donor-ike roe. The interaction between the confict profie, the actors, and causes. A one-off assessment that typicay takes pace at the end of a project, athough it can aso be undertaken as a mid-project review. On the basis of systematicay appied objective criteria, it seeks to assess an on-going or competed project, its design, impementation and overa resuts in reation to its stated goas and objectives. This incorporates a detaied understanding of the operating context in terms of historica, actua or potentia confict into traditiona evauation activities and processes. Confict sensitive evauations are used to understand the overa impact a given intervention has had on this context, and the context on the intervention. These evauations can then be used to adjust subsequent phases of an ongoing initiative, or gain essons for future initiatives. Refers to the fact that donor funding of a project that government woud have undertaken anyway (even if donor funding were not avaiabe) has the effect of freeing government resources to be used for other purposes (eg miitary) 9. Actors ong term objectives. The machinery or system of rues that exercises pubic authority over a given territory. Governments operate at various eves eg nationa, regiona, provincia, district. Governments seek to determine and impement pubic poicy, to defend the country and maintain order, and to provide pubic services. They are responsibe for raising revenue and managing pubic expenditure. Note: Where the forma machinery of government has broken down, authority may be exercised by others (eg oca warords) who assume the roe of the governing power. Humanitarian Assistance Impacts Negative / Positive Impementation Impementation (Confict Sensitive) Indicators (confict) Indicators (interaction) Activities designed to rapidy reduce human suffering in emergency situations, especiay when provided by outside agencies to suppement oca efforts 10. These describe an interaction in terms of its contribution to exacerbating or mitigating vioence or the potentia for vioence. The process of reaising objectives by enacting the activities designed in the panning process the operationaisation of the proposa. Impementation invoves reguar progress reviews to enabe pans to be adjusted if necessary. Confict-sensitive impementation invoves cose scrutiny of the operationa context through reguary updating the confict anaysis, in order to avoid negative impacts and maximise positive impacts on the context. Specify what to measure in order to monitor and evauate the evoution of confict factors and dynamics that impact a given context. Specify what to measure in order to monitor and evauate the interaction between a project or intervention and confict factors and dynamics.

5 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction 5 Indicators (project / intervention) Interaction Interests Specify what to measure in order to monitor and evauate the performance of poicies, projects and programmes 11. This refers to the two-way reationship between an intervention and the context in which it is situated, ie the impact of the intervention on the context and the impact of the context on the intervention. The underying motivations of the actors. Intervention This refers to a range of activities, faing within one or other of the categories isted in Chapter 1 Box 1. An intervention can be very sma (eg heping viagers buid wes) or very arge (eg a peace process or setting up a new government structure). It may be at project eve (see Chapter 3) or at sectora eve (see Chapter 4). Management (project / programme) Monitoring Monitoring (confict sensitive) Partnership environment Peacebuiding Panning Panning Confict sensitive Positions Profie Programme Project Project Cyce Region Reationships Rights-based Approach Management invoves supervising the entire process of impementation and making operationa decisions. Good management requires the abiity to see the bigger picture: how a the eements of the intervention, its operationa context and the interaction between the two, fit together. The reguar process of examining a project s actua outputs and impacts. Carried out during the impementation phase, monitoring seeks to provide the project team with current information that wi aow them to assess progress in meeting project objectives, and to adjust impementation activities if necessary. Additionay, monitoring generates data that can be used for evauation purposes. Confict-sensitive monitoring incorporates an understanding of confict actors, profie, causes and dynamics into traditiona monitoring processes and activities, with the intention of better understanding the context and the intervention, as we as the interaction between the two. Confict-sensitive monitoring is used to inform adjustments and changes to project or programme activities so that the intervention has the optimum impact on confict dynamics. The reationships between different stakehoders who are working together. Measures designed to consoidate peacefu reations and strengthen viabe poitica, socio-economic and cutura institutions capabe of mediating confict, and to strengthen other mechanisms that wi either create or support the necessary conditions for sustained peace 12. The process through which certain probems are identified, their causa inkages anaysed, and effective soutions deveoped. The resut of this process is often embodied in a programme designed with predefined objectives, activities, impementation process and verifiabe indicators of progress. Confict-sensitive panning incorporates the confict anaysis (the profie, causes, actors, and dynamics of a confict situation) into traditiona panning. The intention is to have a constructive impact on the context to avoid further deterioration and promote more peacefu and effective soutions. Refer to the actors stances on key and emerging issues in a given context. A brief characterisation of the context within which the intervention wi be situated. A proposed pan with a medium to ong-term horizon and possiby without a defined end, often incorporating strategic objectives, mutipe projects and activities 13. A set of time-bound activities typicay contributing to a arger programmatic objective, which are panned, impemented, monitored and evauated in reation to issue(s) that they seek to address 14. Provides a systematic framework for the panning, impementation and evauation of projects and programmes 15. A geo-poiticay defined area at the sub-nationa eve (eg an area comprising severa districts). Aso used to refer to a coection of contiguous countries (eg the Eastern region of Africa). The interactions between actors at various eves, and their perception of these interactions. A conceptua framework for the process of human deveopment that is normativey based on internationa human rights standards and operationay directed to promoting and protecting human rights. Essentiay, it integrates the norms, standards and principes of the internationa human rights system into the pans, poicies and processes of deveopment 16.

6 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction Scenarios Sector Provide an assessment of what wi happen next in a given context according to a specific timeframe. A part or division (eg of the nationa economy: private sector, pubic sector, education sector). In the context of Sectora or Sector-wide approaches, a core government function, which is reated to a particuar ministry and spending programme (eg heath, education and roads) 17. Spoiers Trianguation Individuas and organisations that beieve peace threatens their power, wordview and interests, and who seek to undermine attempts to achieve it 18. The verification of each piece of information with at east two corroborative or compementary sources, to obtain data that eventuay matches up. 5. Abbreviations/Acronyms ACP APFO ASEAN AU CECORE CHA CIDA CCA DAC DFID EU FEWER GTZ HIPC ICRC IDRC IGAD INGO IPCR LICUS MDGs NEPAD NGO Africa, Caribbean and Pacific countries Africa Peace Forum Association of South East Asian Nations African Union Center for Confict Resoution Consortium of Humanitarian Agencies Canadian Internationa Deveopment Agency Common Country Assessment framework Deveopment Assistance Committee Department for Internationa Deveopment (UK) European Union Forum on Eary Warning and Eary Response Ministry of Technica Cooperation (Germany) Heaviy Indebted Poor Countries Initiative Internationa Committee of the Red Cross Internationa Deveopment Research Centre Intergovernmenta Authority on Deveopment (Horn of Africa countries) Internationa NGO Institute for Peace and Confict Resoution (Nigeria) Low Income Countries Under Stress Mienium Deveopment Goas New Partnership for African Deveopment Non-Governmenta Organisation

7 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction 7 OECD PRSP SCA SIDA UN UNDAF UNDP USAID Organisation for Economic Cooperation and Deveopment Poverty Reduction Strategy Paper Strategic Confict Assessment Swedish Internationa Deveopment Agency United Nations United Nations Deveopment Assistance Framework United Nations Deveopment Programme United States Agency for Internationa Deveopment 6. Endnotes 13 Adapted from Loca Government and Pubic Service Reform Initiative, Gossary of Terms 14 Adapted from and Poaris Grant, Gossary 15 Jones, 2002:4. 1 Internationa Aert, Resource Pack for Confict Transformation, London: March 2003 section 2:3. 2 Internationa Aert, 2003: 5. 3 Adapted from Aex P. Schmid, Thesaurus and Gossary of Eary Warning and Confict Prevention Terms (Abridged Version), Synthesis Foundation / FEWER, May approaches-04.htm 17 Jones, 2002: Adapted from Payson Confict Study Group, 2001: Adapted from Stephen Jones and Gareth Wiiams, A Common Language for Managing Officia Deveopment Assistance: A Gossary of ODA Terms, Oxford Poicy Management, Internationa Aert, 2003: section 2:3. 6 Schmid, Adapted from Payson Confict Study Group, A Gossary on Vioent Confict: Terms and concepts used in confict prevention, mitigation, and resoution in the context of disaster reief and sustainabe deveopment, 4 th Edition, Payson Center for Internationa Deveopment and Technoogy Transfer, Tuane University, May 2001: Adapted from Nationa Phianthropic Trust, Gossary 9 Jones, 2002:9. 10 Thomas G. Weiss and Cindy Coins, Humanitarian Chaenges and Intervention: Word poitics and the diemmas of hep. Bouder, Co: Westview, 1996: 219. Aex P. Schmid, Thesaurus And Gossary of Eary Warning And Confict Prevention Terms (Abridged Version), FEWER, May 1998: Jones, Adapted from Internationa Aert, 2003.

8 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Introduction

9 CHAPTER 1 An introduction to confict-sensitive approaches to deveopment, humanitarian assistance and peacebuiding Purpose of chapter This chapter expains what is meant by confict sensitivity who needs to have it, and when how to pace confict sensitivity within deveopment, humanitarian assistance and peacebuiding, and current debates within these fieds Who shoud read it A those with responsibiity for, or interest in, deveopment, humanitarian assistance and peacebuiding, in areas at risk of or affected by vioent confict. Why they shoud read it To understand the reevance of confict sensitivity within the framework of their work, even where it may appear foreign to their fieds of intervention. To hep them situate confict sensitivity within their poicies and operations. To enabe them to see that confict sensitivity is not necessariy a new approach, or an additiona component to their work. Contents 1. Introduction to key concepts 2. Deveopment and confict 3. Humanitarian assistance and confict 4. Confict sensitive partnerships 5. Peacebuiding and confict 6. Endnotes Annex 1: Further reading 1. Introduction to key concepts 1.1 Some definitions Confict sensitivity This means the abiity of your organisation to: understand the context in which you operate; understand the interaction between your intervention and the context; and act upon the understanding of this interaction, in order to avoid negative impacts and maximise positive impacts. Note: the word context is used rather than confict to make the point that a socio-economic and poitica tensions, root causes and structura factors are reevant to confict sensitivity because they a have the potentia to become vioent. Confict is sometimes erroneousy confused with macro-poitica vioence between two warring parties (as with a civi war between a nationa government and a non-state actor). Context This refers to the operating environment, which ranges from the micro to the macro eve (eg community, district / province, region(s), country, neighbouring countries). For the purposes of this Resource Pack, context means a geographic or socia environment where confict exists (see the Introduction for a description of the various eements in the confict spectrum) and is comprised of actors, causes, profie and dynamics. Government The machinery or system of rues that exercises pubic authority over a given territory. Governments operate at various eves nationa, regiona, provincia, district, etc. Governments seek to determine and impement pubic poicy, to defend the country and maintain order, and to provide pubic services. They are responsibe for raising revenue and managing pubic expenditure.

10 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 Note: Where the forma machinery of government has broken down, authority may be exercised by others (eg oca warords) who assume the roe of the governing power. Donor An institution that provides grants and other forms of financia contribution (or assistance in kind) to organisations such as governments or to civi society (oca and internationa). A donor may be a biatera agency (eg DFID in the UK), a mutiatera agency (eg the Word Bank or the UN), a phianthropic organisation (eg a foundation), or an INGO providing funding for a oca partner. 1 Civi society A domain parae to, but separate from the state and the market, in which citizens freey group together according to their own interests. It encompasses a sef-initiated and vountary sector of formay associated individuas who pursue non-profit purposes in non-governmenta organisations (NGOs), community-based organisations, reigious bodies, professiona associations, trade unions, student groups, cutura societies, etc. 2 Intervention Interaction This refers to the two-way reationship between an intervention and the context in which it is situated, ie the impact of the intervention on the context and the impact of the context on the intervention. Negative / positive impacts These describe the above interaction, in terms of its contribution to exacerbating or mitigating vioence or the potentia for vioence. 1.2 Operationaising confict sensitivity Confict anaysis (expained in detai in Chapter 2) is the centra component of confict-sensitive practice. It provides the foundation to inform confict sensitive programming, in particuar in terms of an understanding of the interaction between the intervention and the context. The approach is summarised in Tabe 1. The foowing sequence represents the key stages of understanding the interaction between a project and a given context. The sequence is composed of three eements: This refers to a range of activities, faing within one or other of the categories isted in Box 1. An intervention can be very sma (eg heping viagers buid wes) or very arge (eg a peace process or setting up a new government structure). It may be at project eve (see Chapter 3) or at sectora eve (see Chapter 4). BOX 1 Types of intervention Deveopment Long-term efforts aimed at bringing improvements in the economic, poitica and socia status, environmenta stabiity and quaity of ife of the popuation especiay the poor and disadvantaged. Humanitarian assistance Activities designed to rapidy reduce human suffering in emergency situations, especiay when oca authorities are unabe or unwiing to provide reief. 3 Peacebuiding Measures designed to consoidate peacefu reations and strengthen viabe poitica, socio-economic and cutura institutions capabe of mediating confict, as we as strengthen other mechanisms that wi either create or support the creation of necessary conditions for sustained peace. 4 Diagram 1 The outer circe represents a confict anaysis of the pre-existing context, organised as profie, actors, causes and their dynamic interaction (see Chapter 2)

11 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 3 Diagram 2 The inner project circe represents the project cyce of the proposed intervention, organised as panning, impementation and monitoring and evauation components (see Chapter 3) Diagram 3 The arge arrows represent the assessment of the interaction between the context, and the project (see Chapter 3) TABLE 1 The What and How of confict sensitivity What to do How to do it Understand the context in which you operate Carry out a confict anaysis, and update it reguary Understand the interaction between your intervention and the context Use this understanding to avoid negative impacts and maximise positive impacts Link the confict anaysis with the programming cyce of your intervention Pan, impement, monitor and evauate your intervention in a confict-sensitive fashion (incuding redesign when necessary) Guiding principes The principes beow reate to the process of impementing a confict-sensitive approach. They may require further quaification, depending on the context. Participatory process Incusiveness of actors, issues and perceptions Impartiaity in reation to actors and issues Transparency Respect for peope s ownership of the confict and their suffering Accountabiity for one s own actions Partnership and co-ordination Compementarity and coherence Timeiness. Assumptions for those wanting to appy confict sensitivity These reate to institutiona pre-requisites for confict sensitivity. Wiingness and abiity to impement confict sensitivity Openness to continuous earning and institutiona adaptabiity to refect confict sensitivity Abiity to dea with uncertainty, as there is no one-fits-a recipe for confict sensitivity Honesty and humiity in recognising the extent or imitation of the impact of interventions Recognition of the compexity and interdependence of the wider system in which institutions operate.

12 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Time and resource impications Integrating confict sensitivity into deveopment means thinking differenty about programming, and adopting a new institutiona mind-set. At the outset this may require more resources (both human and financia). Over time, as confict sensitive practice becomes embedded within the framework, structures and processes of organisations, these resource requirements wi decrease. They are in any case not arge compared with the potentia costs of faiing to be sensitive to confict issues: wasting resources on troube-shooting and fire-fighting unsustainabe programming forced project cosure or withdrawa to a safe area inabiity to impement activities or entire projects endangering staff and beneficiaries. Further, an intervention which is not confict sensitive even if it meets its objectives in other respects (eg constructing X kiometres of road) can ead to renewed or exacerbated confict, which costs human ives and suffering and causes materia, institutiona and economic damage (see Box 2 and next section). BOX 2 Humanitarian aid gone wrong The cassic exampe of deveopment, humanitarian and peacebuiding work gone wrong is the case of the Rwanda genocide in By and arge, reief agencies had ony a very imited understanding of the structures of Rwandese society and very itte account had been taken of the views of the beneficiaries in the design and impementation of programmes. [During] the first weeks of the refugee crisis traditiona structures of authority had been used to organize food distribution and very high eves of diversion had occurred and vunerabe groups often received very itte. Attempts to rectify these faiings were met with sometimes vioent resistance. 5 Even if the food distribution had been more effective, the high eves of insecurity and vioence within the refugee camps and the negative impact the camps had on the surrounding popuations woud have precuded this intervention from being considered a success. 2. Deveopment and confict Confict sensitivity in deveopment assistance can serve not ony to decrease eves of vioent confict or the potentia for vioent confict, but aso to increase the effectiveness of the assistance. Deveopment assistance without confict sensitivity can inadvertenty encourage confict, and end up doing more harm than good. BOX 3 Links between confict and deveopment Key findings Confict and vioence increase poverty. Poverty is frequenty the resut of structura vioence. Conficts usuay emerge as a resut of concrete grievances, but individua economic interests ( war economy ) gain infuence during their course. These economic interests are usuay major obstaces to making peace. Deveopment (generay intended to impact poverty) can hep prevent vioent confict, yet sometimes contributes to it. Key recommendations for confict-sensitive deveopment Address confict and its causes in order to tacke poverty (confict anaysis, confict sensitive panning) Address the economic dynamics (eg inequaity, war economy) fueing vioent confict (confict anaysis, confict sensitive panning) Identify approaches that wi address the potentiay confict-generating impact of deveopment (confict sensitive project panning, impementation, monitoring and evauation). Since the main objective of deveopment is to eiminate poverty, this section focuses primariy on the interaction between poverty and confict, and seeks to demonstrate how poiticay informed poverty reduction and confict prevention poicies can effectivey reinforce each other. Vioent conficts ead to poverty, particuary where protracted and associated with the coapse of state institutions. Beyond their direct consequences (eg miitary and civiian deaths, dispacement and disabement of popuations), conficts have ong-term poitica, economic, environmenta and socia costs. These incude: erosion of poitica institutions reduced state capacity to provide basic socia services destruction of production base capita fight

13 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 5 oss of food production (confict-reated annua agricutura production osses are estimated at 12% across Africa throughout the 1990s 6 ) destruction or depetion of natura resources disruption of socia networks. 2.1 Human security and human rights Pro-poor deveopment has a number of facets. Human security and human rights are key aspects with inks to confict. BOX 4 Human security As defined by the United Nations in the mid 1990s, human security embraces the twin objectives of freedom from fear (referring to the threat of vioence, crime, and war) and freedom from want (referring to economic, heath, environmenta and other threats to peope s we-being). 7 In a more radica interpretation, individua human security is defined as superseding the security of the state. Such an approach can egitimise miitary humanitarian intervention where the state is unwiing or unabe to guarantee the security of its citizens. 8 A human security approach takes a hoistic view of poor peope s needs, increasing the efficacy of deveopment initiatives. Confict puts both the twin objectives in jeopardy, and by definition the approach demands confict sensitivity. BOX 5 A human rights-based approach This approach expicity inks economic, socia and cutura deveopment to the achievement of poitica and civi rights. It can provide a usefu conceptua framework for confict-sensitive deveopment. Particuary reevant eements of the approach incude: hoistic approach to poverty: human rights provide a hoistic framework for anaysing a given poverty situation, which takes account of poitica factors, insecurity and confict. Based on the indivisibiity of rights, it heps deveop strategies that address the economic, poitica and security dimensions of poverty in a comprehensive manner confict and rights: rights-based deveopment is particuary concerned with poverty that resuts from inequaity and a denia of rights by powerfu groups, since this contradicts the principe of universa rights. In vioent conficts, the rights of ordinary peope are systematicay infringed by the warring parties as we as by a those taking advantage of the confict to promote their own economic and poitica interests. The rights-based response aims at enabing peope to achieve their rights. This is ikey to undermine the power structure on which confict has been buit. On the face of it that shoud reduce confict, but there is the risk that it wi provoke eites to fight back to retain the power structure that supports them, with the opposite effect. It is thus cear that a rights-based approach needs to be confict sensitiveparticipation and accountabiity: a rights-based approach demands that a deveopment actors act accountaby and encourage participation. Accountabiity, participation, incusion and supporting oca capacities aso represent preconditions for the peacefu management of conficts. Enhancement of these quaities in the deveopment context shoud hep strengthen society s capacity to dea with conficts in a non-vioent manner. 2.2 Poitica economy of confict Confict can benefit certain sectors of society, thus creating vested interests in perpetuating confict and impeding peace. The poitica economy of confict is thus an important consideration in impementing confict sensitivity. Many conficts are understood to have their origin in an unaddressed grievance, for exampe ethnic or reigious discrimination, horizontay unequa distribution of resources and dramatic increases in unempoyment. Researchers 9 have recenty begun to emphasise the roe of greed in conficts, and draw attention to the benefits that accrue from participation in confict empoyment in armed forces, access to scarce resources, power. Rarey is the poitica economy of confict ceary deineated as simpy greed or grievance ; often, one can observe a shift over time from grievance to greed. 10 For exampe insurgents need funds for food and suppies, which they often have to raise by iega commercia activity or taxes (eg ransoms from kidnappings); this fundraising can cease being a means to an end and become an end in itsef. Many observers argue that in Coombia, for instance, warring factions are now ess concerned with addressing outstanding grievances than with controing the iicit narcotics trade. Over time, vioent confict encourages the emergence of a war economy dominated by poiticians, commanders and fighters, whose interests are to generate new forms of profit, power and protection 11. Key activities incude the taxation of egitimate and iicit economic activities, asset stripping and ooting, and the economic bockade of dissenting areas. At the same time, a shadow economy emerges to make high profits at the margin of the confict. Poitica and other entrepreneurs benefit from the genera insecurity and ack of rue of aw to extract precious natura resources, to trade in iicit goods (eg drugs), and to smugge high vaue commodities.

14 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 The resuts of a this are concentrations of power and weath, the destruction of economic assets, and impoverishment of vunerabe groups. Without confict sensitivity, internationa assistance can make matters worse by adding to the vested interests who benefit from proonging the war: for exampe oca eaders, who usuay come to contro, and profit from, at east part of the confict-reated reief; and otherwise unempoyabe educated youth, offered we-paid jobs by deveopment agencies. The economic structures created by confict are among the most powerfu bockages to making peace. Deveopment agencies, then, need to factor the poitica economy of confict into their strategies and approaches to ensure they do not fue existing conficts through boosting war economies. Because over time there is a propensity for confict to shift from grievance to greed, a parties incuding deveopment agencies need to focus on the eary treatment of grievances. Addressing the poitica economy eary and effectivey is key to ensuring confict sensitivity. Chapter 3 Modue 1 on panning provides some specific suggestions for how to approach this work. 2.3 Inequaity and discrimination as sources of confict Poverty, together with economic and human security factors, pays an important roe in deveopment agendas. There is a widespread assumption that poverty is a source of vioence, despite there being no direct causa reationship between the two. Athough today most vioent conficts take pace in poor countries, they do not necessariy occur in the poorest of them, nor are a poor countries invoved in confict. Research has shown that poverty and particuary extreme inequaities between rich and poor become sources of confict where they are inked to the rea or perceived oppression of certain groups (eg socia, reigious, ethnic). The state can be an instrument of discrimination and private enrichment in the hands of a powerfu eite and its foowers, or it can mediate between different interest groups through incusive poitica processes and the redistribution of resources. Externa factors such as word market prices, indebtedness and aid conditionaity affect the state s abiity to fufi this roe as much as interna poitica dynamics. Civi society can compement, but shoud not by-pass and weaken the state in its function as mediator. 2.4 The impact of externa assistance on poverty and confict The impact of externa deveopment assistance on the dynamics of poverty and confict is often ambiguous. Deveopment assistance can contribute to stabiity when states use it to address human security needs, the poitica economy of confict, and inequaity and discrimination, and aso for debt servicing and paying the state bureaucracy. However, deveopment assistance can aso exacerbate confict, for exampe, through supporting corruption or heping to perpetuate an unjust status quo or by putting too much emphasis on debt servicing. Additionay, conditionaities attached to deveopment assistance (eg structura adjustment poicies) can increase tensions, particuary where, without compensatory measures, they require ay-offs in the pubic sector and cuts in state subsidies for basic consumer goods. The first principe for aid poicy makers as set out in the OECD-DAC Guideines on Heping Prevent Vioent Confict 12 is to do no harm and to guard against unwittingy aggravating existing or potentia conficts, as we as effectivey addressing the underying causes of poverty and confict. Effectivey ensuring that deveopment assistance does no harm wi improve the impact of assistance on poverty mitigation. It ceary demands confict sensitivity. When confict sensitive aspects of deveopment assistance (such as promoting human security, and addressing the poitica economy of confict, and addressing the sources of inequaity and discrimination) are taken into account, deveopment assistance can hep mitigate vioent confict. Because confict and poverty are inextricaby inked, decreasing vioent confict wi aso serve to address many of the underying causes of chronic poverty. Making deveopment assistance sensitive to confict shoud improve its overa impact on deveopment goas and objectives as we as on decreasing vioence. Addressing unequa and discriminatory root causes of poverty both horizontay (across socia, reigious and ethnic groups) and verticay (grassroots, civi society and government) is vita to ensuring both deveopment goas and confict sensitivity.

15 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Humanitarian assistance and confict BOX 6 How humanitarian assistance can exacerbate confict Key findings Humanitarian assistance is at risk of becoming an instrument of war at the oca eve through the manipuation of aid resources by warords, at the goba eve through its instrumentaisation for partisan poitica interests. In some particuary compex situations, externa interventions are imited to humanitarian assistance. In the absence of concurrent sustained deveopment or peacebuiding interventions, the potentiay negative impact of such humanitarian assistance is far greater heightening the need for confict sensitivity. Many humanitarian agencies are increasingy aware of the risks of their interventions exacerbating confict and some have been deveoping methodoogies and mechanisms for addressing this. Key recommendation for confict sensitive humanitarian assistance Confict sensitivity can hep humanitarian organisations dea with the chaenges of poiticisation. It invoves: poiticay informed neutraity, a confict prevention perspective (Do Some Good, Do No Harm), coherence and compementarity (see Chapters 2 and 5). Due to the often urgent nature of humanitarian assistance interventions, a soid institutiona framework for confict sensitivity at a stages of the intervention cyce needs to be estabished in order to formuate contingency pans and respond rapidy to changing circumstances. During the post-cod War period the nature of vioent confict changed as the number of wars within states overtook the number of wars between states, and during the first haf of the 1990s the prevaence and intractabiity of vioent intrastate conficts rose quite dramaticay. 14 In this environment of new and protracted intra-state wars, humanitarian principes became difficut to uphod. Where states ack egitimacy, the civi popuation is a deiberate target of vioence, and the perpetrators are often indistinguishabe from the wider popuation. Additionay, evidence emerged that humanitarian aid can unintentionay contribute to confict. Aid deiveries sometimes precipitate raiding (eg Mozambique), food is diverted to feed combatants, whie high diversion rates and vioence against humanitarian workers precipitate the use of security and transport contractors whose interests ie in maintaining vioence (eg Somaia). Confict sensitivity has an important roe in ensuring that humanitarian assistance fufis its humanitarian objectives and does not inadvertenty fue confict. 3.1 The poiticisation of humanitarian assistance Humanitarian actors face an increasing poiticisation of their work. There is concern among some humanitarians what some have caed the neutraity eevated schoo 15 that humanitarian assistance is becoming the poicy instrument of choice in situations where Western governments do not wish to engage poiticay, but moray fee compeed to act. Some even suggest that reief has become the continuation of poitics by other means 16. In paces such as Sudan and Burundi, humanitarian assistance has come to repace deveopment aid due to a ack of sustainabe commitment by the internationa community an approach that is typica for ong-term, ow-intensity conficts in non-strategic areas of the goba south. The War on Terrorism is another manifestation of the increasingy poitica operating environment for humanitarian agencies. One particuary compeing recent exampe of this was the attempt to win Afghans hearts and minds through food drops and the depoyment of specia miitary units in civiian cothes for bridge buiding and digging wes. For some agencies, humanitarian assistance contracts offered by USAID in Iraq faciitate war, and so bidding on the contracts woud have represented an unacceptabe compromise of their organisationa principes and vaues. The main risk of poiticised humanitarian assistance ies in fueing war economies and undermining oca coping strategies particuary where the assistance is provided over years and even decades. Recenty there have been a number of attempts what some have termed the neutraity abandoned schoo 17 to pace conditionaity on humanitarian assistance in an effort to modify the poitica behaviour of a regime or armed group. Exampes incude the attempt by the US government to tie food aid to poitica concessions during the 1995 famine in North Korea; the seective provision of aid to opposition-hed areas in Serbia (1999); and withhoding assistance funds to Sierra Leone (1997) and Afghanistan ( ). Given the universa character of humanitarian assistance, these experiments were highy controversia and proved argey ineffective. There is a growing consensus within the donor community to abstain from such efforts. What some have caed the third-way humanitarianism schoo 18 argues for a stronger roe of humanitarian aid in peacebuiding and addressing the root causes of vioent confict. This approach argues that aid agencies shoud

16 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 avoid taking sides on the poiticisation of humanitarian assistance, and instead make strategic use of their resources to contribute to confict reduction and peacebuiding. Depending on one s perspective then, confict sensitivity is either key to ensuring humanitarian aid efficacy in an increasingy poitica operating environment (the neutraity eevated and neutraity abandoned schoos) or synonymous with it (the third way humanitarianism schoo). confict to hep agencies respond to these more effectivey Do No Harm: an attempt by agencies to monitor the intended and unintended impact of their work to avoid contributing to instabiity and vioence coherence and compementarity: deveopment of structures that aow agencies with different mandates (humanitarian, deveopment, peacebuiding) to compement each other s work. This may invove joint assessments and panning. (confict anaysis, panning). 3.2 Confict-sensitive humanitarian assistance The significant chaenges to the principes and practice of humanitarian agencies outined above have triggered an intensive search for new approaches to the deivery of humanitarian aid. Initiay, these new approaches focussed on minimaist and maximaist positions 19. The former asked for a return to the origina humanitarian principes, whie the atter argued for a broadening of the humanitarian mandate. As a consequence of this debate, the Sphere handbook was revised to incude a suggestion that understanding the nature and source of confict heps to ensure that aid is distributed in an impartia way and reduces or avoids negative impact. (see Box 7, and Chapter 2 on confict anaysis) 4. Confict-sensitive partnerships This section examines the new forms of partnership emerging in internationa co-operation between Southern and Northern governments, and between governments, civi society and the private sector regarding their responsiveness to vioent confict. The main deveopment cooperation agreements are described in Box 8. BOX 7 The Sphere Project The Sphere Project was aunched in 1997 by a group of humanitarian NGOs and the Red Cross and Red Crescent movement. A two-year process of inter-agency coaboration saw Sphere frame a Humanitarian Charter and identify Minimum Standards to be attained in disaster assistance, in each of five key sectors (water suppy and sanitation, nutrition, food aid, sheter, and heath services. The Charter and the Minimum Standards are contained in the Sphere Project Handbook: Humanitarian Charter and Minimum Standards in Disaster Response A confict-sensitive approach to humanitarian assistance, then, recognises the poitica nature of assistance and incorporates a contextua understanding through the foowing eements: poiticay informed neutraity: given widespread attempts to manipuate aid for poitica purposes, a recognition by agencies that neutraity requires an in-depth understanding of the goba and oca confict environment confict prevention perspective (Do Some Good): an understanding of underying tensions and atent BOX 8 Deveopment co-operation agreements Word Bank Poverty Reduction Strategy Papers (PRSPs) Poverty Reduction Strategies have become the main framework for co-ordinating donor assistance to the poorest countries. Initiated in 1999 by the Word Bank in response to the Heaviy Indebted Poor Countries (HIPC) Initiative, PRSPs are a pre-condition for accessing debt reief and new IMF and Word Bank credits. They are expected to be nationay owned through comprehensive stakehoder consutation. They comprise an in-depth poverty anaysis, an indication of priority areas for action, an indication of financing requirements, an impementation pan, and impact indicators to measure performance. Biatera donors increasingy orientate their aid towards PRSP priorities. Of the 52 countries engaged in the process as of August 2003, the Word Bank considered 25 as confict-affected, whie many others had socia and economic conditions that put them at risk of conficts escaating into arge-scae vioence. The Bank, in coaboration with other partners, has embarked on a working programme aimed at ensuring effective poverty reduction in confict-affected countries. 20

17 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 9 EU-ACP Cotonou Agreement The EU-ACP Cotonou Partnership Agreement is a comprehensive trade and aid engagement between 78 African, Caribbean and Pacific (ACP) countries and the European Union (EU) signed in 2000, which invoves an aid package of 15.2 biion for the years Cotonou emphasises the poitica dimension of the EU-ACP partnership and institutionaise scivi society consutation on key poicy issues. Artice 11 of the Agreement outines the partners commitment to confict prevention and peacebuiding and provides the ega basis for using European Deveopment Fund money for this purpose. The New Partnership for African Deveopment (NEPAD) With the NEPAD initiative ed by South Africa, Nigeria, Senega, Egypt and Ageria, formay aunched in 2001, African eaders agreed to deepen co-operation among themseves and with donors to combat poverty and promote deveopment on the African continent. NEPAD aso aims to enhance economic and poitica governance through peer review mechanisms comparabe to those of the OECD. This wi hep create the conditions for enhanced partnership with donor governments, which are offered in a framework of mutua accountabiity. NEPAD incudes a Peace and Security Initiative aimed at promoting ong-term conditions for deveopment and security (by addressing the underying causes of confict) and strengthening African peace and security institutions (eg sub-regiona organisations). As a programme of the African Union (AU), NEPAD is aso envisaged to compement and strengthen the AU s peace and security initiatives. 4.1 The probem of "poor performers" It has become common donor practice to ink high eves of partnership and assistance to economic and poitica performance criteria. This has resuted in higher aid fows to so-caed high potentia areas, and the negect of poor performers countries whose governments ack the capacity and often the wi to impement pro-poor poicies. Many of these poor performers are invoved in or recovering from armed confict. The poor performers, or LICUS (ow-income countries under stress) countries, have been the subject of a number of studies (eg Word Bank work on LICUS countries, OECD/DAC work on difficut partnerships ). In the ight of the Miennium Deveopment Goas 21, it is argued that poor government performance cannot justify withhoding aid from the miions of poor peope who ive in these countries. It has been noted that LICUS countries have a procivity to become faied states and terrorist havens, causing instabiity throughout their respective regions and beyond. From a goba security point of view, renewing deveopment co-operation with these countries coud become part of a civiian strategy to reduce confict at a goba eve. 5. Peacebuiding and confict Peacebuiding organisations may find it particuary difficut to acknowedge the need to be confict sensitive. This may be for a number of reasons, but mainy because their mandate to buid peace eads them to assume that their activities are bound to contribute to the creation of peacefu environments. This assumption may ead to a non-systematic anaysis of the context in which the organisations operate; a ack of panning when impementing peace- buiding projects; an uncoordinated or non-integrated approach to peacebuiding; as we as dubious caims of success based on assumptions about peacebuiding project achievements that are premised on questionabe cause-and-effect scenarios. BOX 9 How peacebuiding can aggravate confict Key findings Peacebuiding interventions, as deveopment and humanitarian interventions, can inadvertenty exacerbate confict. Internationa intervention in peacebuiding does not aways achieve fu compementarity with oca efforts for peace, particuary when a imited number of oca actors have been consuted or invoved. Confict-sensitive peacebuiding is better peacebuiding. Promoting a co-ordinated effort is a key principe of successfu peacebuiding initiatives. Key recommendations for confict-sensitive peacebuiding Peacebuiding organisations wi be most effective when they ink their panning directy and expicity to a comprehensive confict anaysis. To avoid working at cross-purposes, oca, nationa and internationa peacebuiding actors shoud work together to gain a cearer understanding of their respective roes (panning, impementation). Whie it may be difficut for peacebuiding organisations, just as with humanitarian and deveopment agencies, to accept that they can exacerbate confict, there is strong evidence that they can do so. For instance, raising expectations about the resoution of outstanding grievances can trigger or acceerate confict when those expectations are disappointed as they often are when there are vested interests in maintaining the status quo or where there are not enough resources in the short term to

18 10 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 impement agreements adequatey. There is aso growing evidence that internationa agencies providing non-sensitive support to oca peacebuiding organisations can create a peace market, which contributes itte to peacebuiding as the organisations main focus is on gaining access to the generousy resourced peacebuiding funds of the internationa community. Nor are peacebuiding organisations at any eve immune from the prejudices, party poitics, or systems of patronage that fue confict. Just as with humanitarian and deveopment agencies, it is of the utmost importance that peacebuiding organisations aso take responsibiity for their potentia impact by adopting confict sensitive approaches. 5.1 Confict-sensitive aspects of peacebuiding Peacebuiding organisations that want to confict-sensitise their operations can borrow extensivey from the considerations outined in the sections on Deveopment and Humanitarian Assistance. In addition, peacebuiders wi need to consider in their programming the mutipe eves inherent in effective peacebuiding, as we as the roe of oca and internationa actors and issues. 5.2 Muti-eve aspects of peacebuiding As peacebuiding organisations mutipy and move towards engaging at the oca eve, a number of chaenges emerge. Externa engagement stifes oca eadership, further compicating compex oca power reations, and can even create resentment by imposing its own processes. In this sense, too much and misconceived confict management may actuay aggravate the situation. Experience has aso shown that whie peacebuiding actors are particuary effective at their own eve, their everage at other eves is imited. Viage eders, for exampe, may wied sufficient authority and sanction-power to restrain youthfu catte thieves from carrying out their attacks, but their infuence on government poicies promoting resettement to their areas and thus exacerbating and conficts may be ow. Nationa eve interest groups and pariamentarians, possiby in coaition with internationa NGOs, may be better paced to affect such decisions. It is thus crucia for externa organisations to work towards a better understanding of the oca actors and processes invoved in peacebuiding, to support their strengths whie compementing areas of weakness. (See Chapter 2, Confict anaysis) 5.3 Loca and nationa aspects of peacebuiding More coud be done to use oca knowedge about the nature of conficts and peacebuiding at nationa eve. First of a, it can be hepfu to reaise that many of these conficts refect a ong oca history of poor governance and state accumuation, such as ooting, rent-seeking (eg coection of fees by government officias for services the government normay offers free or at a ower price than that being charged by the officias) or iegitimate trade. Understanding, in its oca context, the economic and poitica rationae of eites engaging in confict can be an important prerequisite for defining remedia strategies at the nationa eve. When discussing oca forms of peacebuiding, the question of traditiona conficts often arises. In the East African context, for exampe, catte rusting sometimes spiras into vioent confict. It is frequenty mentioned as a traditiona confict, as it is supposedy carried out foowing age-od triba traditions. Athough such conficts may adopt a traditiona guise, it is extremey important to recognise that today they are often fueed by dynamics inked to the nation state and the nationa and even goba economy. As an exampe, research carried out by the programme team suggests that deivering food for peope, but not food for their animas, is an i-conceived response to food crises, and can fue catte rusting to repace dying or dead animas. Traditiona forms of justice and reconciiation are aso critica in post-confict situations, when arge numbers of perpetrators of vioence, incuding chid sodiers, need to be made to face up to their deeds and to be reintegrated into their communities. Para-ega institutions and heaing rituas can sometimes offer ex-combatants opportunities to repent and become vauabe members of the community again. It woud be naïve, however, to assume that oca processes aone can bring about peace when the main issues have not yet been resoved at the nationa eve. The main roe of oca eve initiatives consists in providing a grassroots dimension to a successfu muti-eve peace process so they must have a vountary, not state-imposed character. To prevent further confict in the ong term, oca principes of dispute settement, justice and confict resoution need stronger institutionaisation. This institutionaisation requires puraistic and we-integrated justice systems and nationa constitutions that combine traditiona vaues with internationa human rights standards (such as non-discrimination on the grounds of gender and ethnicity). The Report of the A-African Conference on African Principes of Confict Resoution and Reconciiation (Addis Ababa, November 1999) set out some principes for Africa (see Box10).

19 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 11 BOX 10 African principes of confict resoution and reconciiation Underying principe To prevent atent confict escaating into vioence, through open diaogue and consensus decision-making, and, where required, to reconcie a parties and to re-estabish non-expoitative reations or re-incorporate offenders into the community and to maintain socia harmony. Process Investigate the tota context and a roots to a confict or offence; Buid consensus around expected outcomes that wi emerge from any pubic discussion of the confict/offence and the attitudes of the parties towards a resoution; Pubic admission of responsibiity and expression of remorse/repentance for negative actions, incuding sharing of the responsibiity by the famiy/group/can; Determination of damage and redressing the victim/aggrieved party by way of reparation, incuding compensation, whether symboic or proportiona; Pubic act of reconciiation entered into by a parties which is binding on the parties with the sanction on breaches being excusion from society; Importance of mediation and third-party principe; Use of expressive arts - poetry, song, dance, dramatic representations. Some theorists argue that, compared to internationa organisations, traditiona authorities have better knowedge of the oca situation, are more egitimate, and better equipped to carry out the necessary consutations. However, one sti needs to ensure that they are egitimate and not working to further their own aims eg Somaia s can structures which have sometimes been a cause for confict and sometimes for peace. Whie peacebuiding reies on the primacy of those peope iving through the confict, interna and externa actors can usefuy compement each other s different capacities and perspectives. For exampe internationa agencies, as outsiders, can act as faciitators or engage in protection. And as noted in section 5.2, oca peacebuiding actors, whie particuary effective at their own eve, may ack everage in other areas where it is needed. 5.4 Comprehensive anaysis, panning and confict Athough peacebuiding organisations, just as with deveopment and humanitarian organisations, can inadvertenty increase confict, peacebuiders often fai to recognise the need to adopt confict sensitive approaches. Co-ordination between oca and nationa organisations, and between those at the nationa and internationa eve, on confict anayses and joint programme and project impementation, can hep ensure that peacebuiding operations do not infame existing tensions. Likewise, a comprehensive understanding and appreciation of the strengths and imitations of oca or traditiona peacebuiding capacities can aso serve to confict-sensitise operations. Carefu panning, based on a comprehensive anaysis of the confict context and actors, wi hep ensure that peacebuiding operations are confict-sensitive and thereby more ikey to buid peace. Co-ordination between internationa, nationa and oca organisations wi minimise opportunities for overap, missed opportunities and competition. In addition to minimising inadvertent negative impacts on confict, addressing the considerations outined above wi aso serve to augment positive impacts of peacebuiding. 6. Endnotes 1 Adapted from Nationa Phianthropic Trust, Gossary 2 Adapted from Stephen Jones and Gareth Wiiams, A Common Language for Managing Officia Deveopment Assistance: A Gossary of ODA Terms, Oxford Poicy Management, Thomas G. Weiss and Cindy Coins, Humanitarian Chaenges and Intervention: Word poitics and the diemmas of hep. Bouder, Co: Westview, 1996: 219. Aex P. Schmid, Thesaurus And Gossary of Eary Warning And Confict Prevention Terms (Abridged Version), FEWER, May 1998: Adapted from Internationa Aert, Resource Pack for Confict Transformation, London, Internationa Aert: March Joint Evauation of Emergency Assistance to Rwanda, The Internationa Response to Confict and Genocide: Lessons from the Rwanda Experience, Study 3: Humanitarian Aid and Effects (Copenhagen: Steering Committee of the Joint Evauation of Emergency Assistance to Rwanda, 1996), Department for Internationa Deveopment, Foreign and Commonweath Office, and Ministry of Defense, The Causes of Confict in Africa: Consutation document, London: Cabinet Sub-Committee on Confict Prevention in Africa, Commission on Human Security 8 Bajpai, Kanti. The Idea of a Human Security Audit, Kroc Institute Report #19, Autumn Coier, P. and A. Hoeffer, On Economic Causes of Civi War, Oxford Economic Papers 50, 1998: Coier, Keen, D., The economic Functions of Vioence in Civi Wars, Adephi Paper No 319. Oxford: Oxford University Press and Internationa Institute for Strategic Studies, Organisation for Economic Cooperation and Deveopment, Deveopment Assistance Committee The DAC Guideines: Heping Prevent Vioent Confict, Paris, OECD-DAC, 2001, p. 23.

20 12 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 1 13 See, for exampe, Internationa Committee of the Red Cross, The Fundamenta Principes of the Red Cross and Red Crescent, ICRC, Carnegie Commission on Preventing Deady Confict, Preventing Deady Confict: Fina Report New York: Carnegie Corporation of New York, 1997; D. Fearon and David D. Laitin, Ethnicity, Insurgency, and Civi War, American Poitica Science Review 97: 1, March 2003: Nichoas Leader, The poitics of principe: the principes of humanitarian action in practice HPG Report 2, London: Humanitarian Poicy Group, Overseas Deveopment Institute, March 2000: 7 and John Seaman, Manutrition in Emergencies: How can we do better and where do the responsibiities ie? in Disasters 23:4, December 1999: Leader: 7 and Leader: 7 and Goodhand, ByDocName/ConfictAnaysis 21 Annex 1 Further reading Africa Peace Forum, InterAfrica Group, Saferword and Centre for Confict Resoution, Enhancing Confict Prevention and Civi Society Engagement in the Horn of Africa: Opportunities presented by the Cotonou Agreement, Nairobi: Africa Peace Forum, Coier, P. and A. Hoeffer, On Economic Causes of Civi War, Oxford Economic Papers 50, 1998: Coinson, S., M. Bhatia, M. Evans, R. Ganthorpe, J. Goodhand and S. Jackson, Poiticay informed humanitarian programming: using a poitica economy approach, Humanitarian Practice Network Paper 41. London: Overseas Deveopment Institute, Conway, T., C. Moser, A. Norton, and J. Farrington, Rights and Liveihoods Approaches: Exporing poicy dimensions, Natura Resource Perspectives 78. London: Overseas Deveopment Institute, Curtis, D., Poitics and Humanitarian Aid: Debates, diemmas and dissension, Humanitarian Poicy Group Report 10. London: Humanitarian Poicy Group, Da Camara, S., S.C. Gomes, T. Lehtinen, A. Sherriff and J. Bossuyt, The EU s Response to Confict Affected Countries: Operationa guidance for the impementation of the Cotonou Agreement, European Centre for Deveopment Poicy Management Discussion Paper 31. Maastricht: European Centre for Deveopment Poicy Management, Davy, A., Companies in Confict Situations: A roe for tri-sector partnerships? Business Partners for Deveopment Natura Resources Custer Working Paper 9, De Waa, A., Famine Crimes: poitics and the disaster reief industry in Africa (African issues), Oxford: James Currey, Department for Internationa Deveopment, Reaising Human Rights for Poor Peope: Strategies for achieving the internationa deveopment targets, London: DFID, Department for Internationa Deveopment, Foreign and Commonweath Office, and Ministry of Defense, The Causes of Confict in Africa: Consutation document, London: Cabinet Sub-Committee on Confict Prevention in Africa, Douma, P., Poverty, Confict and Deveopment Interventions in Sub-Saharan Africa Paper presented at the Word Bank Goba Deveopment Conference, Bonn: Goba Deveopment Network, The Word Bank, 5-8 December Edson, S., Human Security: An extended and annotated internationa bibiography, Common Security Forum and Centre for History and Economics, University of Cambridge, Gatung, J., Peace by Peacefu Means: Peace and confict, deveopment and civiization. Oso: Internationa Peace Research Institute (PRIO), Goodhand, J., Vioent Confict, Poverty, and Chronic Poverty, Chronic Poverty Research Centre Working Paper 6. Manchester, UK: CPRC and Intrac, Hihorst, D., Being Good at Doing Good? Review of debates and initiatives concerning the quaity of humanitarian assistance. Paper presented at the internationa working conference Enhancing the Quaity of Humanitarian Assistance. Netherands: Ministry of Foreign Affairs, Keen, D., The economic Functions of Vioence in Civi Wars, Adephi Paper No 319. Oxford: Oxford University Press and Internationa Institute for Strategic Studies, Liy, D., The Peacebuiding Dimension of Civi-Miitary Reations in Compex Emergencies: A briefing paper. London: Internationa Aert, Macrae, J., Internationa Humanitarian Action: A review of poicy trends, ODI Briefing Paper. London: Overseas Deveopment Institute, Maxwe, S., What Can We Do with a Rights-Based Approach to Deveopment? ODI Briefing Paper 3. London: Overseas Deveopment Institute, O Brien, P., Doing the Rights Thing: A reationa view. Nairobi: CARE Internationa, Office of the High Commissioner for Human Rights, Human Rights in Deveopment. Organisation for Economic Co-operation and Deveopment (OECD), Deveopment Assistance Committee (DAC), Deveopment Co-operation in Difficut Partnerships, Paris: OECD, Saferword, Confict Prevention Network, Africa Peace Forum and InterAfrica Group, Understanding the EU: A civi society guide to deveopment and confict prevention poicies, Horn of Africa Edition. London: Saferword, Stewart, F. and J. Fitzgerad (Eds), War and Underdeveopment. The Economic and Socia Consequences of Confict. Oxford: Oxford University Press, Stoddard, A., Trends in US humanitarian poicy, Humanitarian Poicy Group Briefing 3. London: Humanitarian Poicy Group, Torrenté, N. de, The War On Terror s Chaenge To Humanitarian Action, Humanitarian Exchange No. 22. London: Overseas Deveopment Institute, Van Genugten W., and C. Pérez-Bustio (Eds.), The Poverty of Rights. Human Rights and the Eradication of Poverty. London and New York: Zed Books, Vandeginste, S., Justice, Reconciiation and Repatriation after Genocide and Crimes Against Humanity: the propsed estabishment of popuar Gacaca tribunas in Rwanda, Addis Ababa: A-African Conference on African Principes of Confict Resoution and Reconciiation, November Verstegen, S., Poverty and Confict: An entitement perspective, CPN Briefing Paper. Berin: Stiftung Wissenschaft und Poitik and Confict Prevention Network, Word Bank Group, Work in Low-Income Countries Under Stress: A task force report. Washington, DC: Word Bank, September Zartman, W. (Ed.), Traditiona Cures for Modern Conficts: African Confict Medicine, Bouder, Co: Lynne Reinner, 2000.

21 CHAPTER 2 Confict anaysis Purpose of chapter This chapter expains: what confict anaysis is and why it matters how to undertake an anaysis Who shoud read it The chapter is aimed at practitioners in governments, civi society (oca and internationa) and donor organisations concerned with deveopment, humanitarian assistance and peacebuiding. The chapter may aso be of interest to others (eg in the private sector, the dipomatic fied, etc). Why they shoud read it Because confict anaysis is the foundation of confict sensitivity and without a good understanding of the context in which interventions are situated, organisations that support or directy impement them may unintentionay hep to fue vioent confict or to exacerbate existing tensions. Confict anaysis heps organisations towards a better understanding of the context in which they work, and a confict sensitive approach. Contents 1. What is confict anaysis and why is it important? 2. Key eements of confict anaysis 3. Working with indicators 4. Integrating confict anaysis and other forms of assessment 5. Better practice in confict anaysis 6. Choosing the right too for confict anaysis 7. Endnotes Annex 1. Toos for confict anaysis 1. What is confict anaysis and why is it important? Confict anaysis is the systematic study of the profie, causes, actors, and dynamics of confict (see Section 2). It heps deveopment, humanitarian and peacebuiding organisations to gain a better understanding of the context in which they work and their roe in that context. Confict anaysis can be carried out at various eves (eg oca, regiona, nationa, etc) and seeks to estabish the inkages between these eves (see Fig 1). Identifying the appropriate focus for the confict anaysis is crucia: the issues and dynamics at the nationa eve may be different from those at the grassroots. But whie inking the eve of confict anaysis (eg community, district, region or nationa) with the eve of intervention (eg project, sector, poicy), it is aso important to estabish systematic inkages with other interreated eves of confict dynamics. These inkages are important, as a of these different eves impact on each other.

22 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 For exampe, when operating at the project eve, it is important to understand the context at the eve at which the project is operating (eg oca eve), so the focus of the anaysis shoud be at that eve; but the anaysis shoud aso take account of the inkages with other eves (eg regiona and nationa). And simiary when operating at the regiona, sector or nationa eves. 2. Key eements of confict anaysis As discussed in Chapter 1, confict sensitivity is about: understanding the context in which you operate understanding the interaction between your intervention and the context acting upon the understanding of this interaction, in order to avoid negative impacts and maximise positive impacts. Confict anaysis is thus a centra component of confict-sensitive practice, as it provides the foundation to inform confict sensitive programming, in particuar in terms of an understanding of the interaction between the intervention and the context. This appies to a forms of intervention deveopment, humanitarian, peacebuiding and to a eves project, programme, and sectora. In other words, confict anaysis wi hep: to define new interventions and to confict-sensitise both new and pre-defined interventions (eg seection of areas of operation, beneficiaries, partners, staff, time frame). (Panning stage) to monitor the interaction between the context and the intervention and inform project set-up and day-to-day decision-making. (Impementation stage) to measure the interaction of the interventions and the confict dynamics in which they are situated. (Monitoring and evauation stage) This section synthesises the key eements of confict anaysis as they emerge from the various confict anaysis toos documented in Annex 1. Looking at each of these eements wi hep to deveop a comprehensive picture of the context in which you operate. Depending on your specific interest, however, you may want to emphasise particuar aspects of key importance. For exampe, if the emphasis is on the identification of project partners and beneficiaries, a good understanding of confict actors and how potentia partners and beneficiaries reate to them wi be the primary requirement. (See Box 2 in this chapter). Generay, good enough thinking is required. This means accepting that the anaysis can never be exhaustive, nor provide absoute certainty. Confict dynamics are simpy too compex and voatie for any singe confict anaysis process to do them justice. Nevertheess, you shoud trust your findings, even though some aspects may remain uncear. Do not be discouraged; some anaysis, no matter how imperfect, is better than no anaysis at a. The foowing diagram highights the common key features of confict anaysis, which wi contribute to understanding the interaction between the context and future/current interventions (see Chapters 3 and 4 for the project and sectora (sector wide) eves respectivey). The common features are the confict profie, actors, causes and dynamics. Each is further described beow.

23 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Causes of confict In order to understand a given context it is fundamenta to identify potentia and existing confict causes, as we as possibe factors contributing to peace. Confict causes can be defined as those factors which contribute to peope s grievances; and can be further described as: structura causes pervasive factors that have become buit into the poicies, structures and fabric of a society and may create the pre-conditions for vioent confict proximate causes factors contributing to a cimate conducive to vioent confict or its further escaation, sometimes apparenty symptomatic of a deeper probem triggers singe key acts, events, or their anticipation that wi set off or escaate vioent confict. 2.1 Profie A confict profie provides a brief characterisation of the context within which the intervention wi be situated. BOX 1 Key questions for a confict profie What is the poitica, economic, and socio-cutura context? eg physica geography, popuation make-up, recent history, poitica and economic structure, socia composition, environment, geo-strategic position. What are emergent poitica, economic, ecoogica, and socia issues? eg eections, reform processes, decentraisation, new infrastructure, disruption of socia networks, mistrust, return of refugees and internay dispaced persons (IDPs), miitary and civiian deaths, presence of armed forces, mined areas, HIV/AIDS. What specific confict prone/affected areas can be situated within this context? eg, areas of infuence of specific actors, frontines around the ocation of natura resources, important infrastructure and ines of communication, pockets of sociay marginaised or excuded popuations. Is there a history of confict? eg critica events, mediation efforts, externa intervention. Note: this ist is not exhaustive and the exampes may differ according to the context Protracted conficts aso tend to generate new causes (eg weapons circuation, war economy, cuture of vioence), which hep to proong them further. As the main causes and factors contributing to confict and to peace are identified, it is important to acknowedge that conficts are muti -dimensiona and muti-causa phenomena that there is no singe cause of confict. It is aso essentia to estabish inkages and synergies between causes and factors, in order to identify potentia areas for intervention and further prioritise them. Some of the toos in Annex 1 eg Cingendae / Fund for Peace, RTC offer methods to assess the reative importance of different factors. Many toos deveoped for confict anaysis aso categorise confict causes or issues by governance, economics, security and socio-cutura factors. BOX 2 Key questions for an anaysis of confict causes What are structura causes of confict? eg iegitimate government, ack of poitica participation, ack of equa economic and socia opportunities, inequitabe access to natura resources, poor governance. What issues can be considered as proximate causes of confict? eg uncontroed security sector, ight weapons proiferation, human rights abuses, destabiising roe of neighbouring countries, roe of diasporas. What triggers can contribute to the outbreak / further escaation of confict? eg eections, arrest / assassination of key eader or poitica figure, drought, sudden coapse of oca currency, miitary coup, rapid change in unempoyment, food, increased price/scarcity of basic commodities, capita fight.

24 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 What new factors contribute to proonging confict dynamics? eg radicaisation of confict parties, estabishment of paramiitaries, deveopment of a war economy, increased human rights vioations, weapons avaiabiity, deveopment of a cuture of fear. What factors can contribute to peace? eg communication channes between opposing parties, demobiisation process, reform programmes, civi society commitment to peace, anti-discrimination poicies. Note: This ist is not exhaustive and the exampes may differ according to the context. Particuar attention shoud be paid to spoiers, ie specific groups with an interest in the maintenance of the negative status quo. If not adequatey addressed within the framework of preventive strategies, they may become an obstace to peace initiatives. Simiary, it is important to identify existing institutiona capacities for peace, in order to further define entry points to address causes of vioent confict. Capacities for peace typicay refer to institutions, organisations, mechanisms and procedures in a society for deaing with confict and differences of interest. In particuar, such actors need to be assessed in reation to their capacity for confict management, their egitimacy, the ikeihood of their engagement, and the possibe roes they can adopt. 2.3 Actors Peope are centra when thinking about confict anaysis. The Resource Pack uses the term actors to refer to a those engaged in or being affected by confict. This incudes individuas, groups and institutions contributing to confict or being affected by it in a positive or negative manner, as we as those engaged in deaing with confict. Actors differ as to their goas and interests, their positions, capacities to reaise their interests, and reationships with other actors (see Box 3). BOX 3 Interests, goas, positions, capacities and reationships Interests: the underying motivations of the actors (concerns, goas, hopes and fears). Goas: the strategies that actors use to pursue their interests. Positions: the soution presented by actors on key and emerging issues in a given context, irrespective of the interests and goas of others. Capacities: the actors potentia to affect the context, positivey or negativey. Potentia can be defined in terms of resources, access, socia networks and constituencies, other support and aiances, etc. Reationships: the interactions between actors at various eves, and their perception of these interactions. Some approaches distinguish actors according to the eve at which they are active (grassroots, midde eve, top eve). In particuar, confict transformation theory attaches great importance to midde eve eaders, as they may assume a cataytic roe through their inkages both to the top and the grassroots. In any case, it is important to consider the reationships between actors / groups at various eves and how they affect the confict dynamics. BOX 4 Key questions for an actor anaysis Who are the main actors? eg nationa government, security sector (miitary, poice), oca (miitary) eaders and armed groups, private sector/business (oca, nationa, trans-nationa), donor agencies and foreign embassies, mutiatera organisations, regiona organisations (eg African Union), reigious or poitica networks (oca, nationa, goba), independent mediators, civi society (oca, nationa, internationa), peace groups, trade unions, poitica parties, neighbouring states, traditiona authorities, diaspora groups, refugees / IDPs, a chidren, women and men iving in a given context. (Do not forget to incude your own organisation!) What are their main interests, goas, positions, capacities, and reationships? eg reigious vaues, poitica ideoogies, need for and, interest in poitica participation, economic resources, constituencies, access to information, poitica ties, goba networks. What institutiona capacities for peace can be identified? eg civi society, informa approaches to confict resoution, traditiona authorities, poitica institutions (eg head of state, pariament), judiciary, regiona (eg African Union, IGAD, ASEAN) and mutiatera bodies (eg Internationa Court of Justice). What actors can be identified as spoiers? Why? eg groups benefiting from war economy (combatants, arms/drug deaers, etc), smuggers, non confict sensitive organisations (see Chapter 1). Note: This ist is not exhaustive and the exampes may differ according to the context.

25 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Dynamics Confict dynamics can be described as the resuting interaction between the confict profie, the actors, and causes. Understanding confict dynamics wi hep identify windows of opportunity, in particuar through the use of scenario buiding, which aims to assess different possibe deveopments and think through appropriate responses. Scenarios basicay provide an assessment of what may happen next in a given context according to a specific timeframe, buiding on the anaysis of confict profie, causes and actors. It is good practice to prepare three scenarios: (a) best case scenario (ie describing the optima outcome of the current context; (b) midde case or status quo scenario (ie describing the continued evoution of current trends); and (c) worst case scenario (ie describing the worst possibe outcome). If history is the key to understanding confict dynamics, it may be reevant to use the timeine to identify its main phases. Try to expain key events and assess their consequences. Tempora patterns (eg the four-year rotation of presidents or cimatic changes) may be important in understanding the confict dynamics. Undertaking this exercise with different actors and groups can bring out contrasting perspectives. BOX 5 Key questions for an anaysis of confict Dynamics What are current confict trends? eg escaation or de-escaation, changes in important framework conditions. What are windows of opportunity? eg are there positive deveopments? What factors support them? How can they be strengthened? What scenarios can be deveoped from the anaysis of the confict profie, causes and actors? eg best case, midde case and worst case scenarios. Note: This ist is not exhaustive and the exampes may differ according to the context. 2.5 Summary BOX 6 Key questions for confict anaysis Profie What is the poitica, economic, and socio-cutura context? What are emergent poitica, economic and socia issues? What confict prone/affected areas can be situated within the context? Is there a history of confict? Causes What are the structura causes of confict? What issues can be considered as proximate causes of confict? What triggers coud contribute to the outbreak/ further escaation of confict? What new factors contribute to proonging confict dynamics? What factors can contribute to peace? Actors Who are the main actors? What are their interests, goas, positions, capacities and reationships? What capacities for peace can be identified? What actors can be identified as spoiers? Why? Are they inadvertent or intentiona spoiers? Dynamics What are current confict trends? What are windows of opportunity? What scenarios can be deveoped from the anaysis of the confict profie, causes and actors? 3. Working with indicators In addition to traditiona (eg project, sectora) indicators, confict sensitive approaches require confict sensitive indicators to monitor and measure: (a) the context and its changes over time; and (b) the interaction between the context and the intervention. They have three eements:

26 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Confict indicators Used to monitor the progression of confict factors against an appropriate baseine, and to provide targets against which to set contingency panning (see beow). Project indicators Monitor the efficiency, effectiveness, impact and sustainabiity of the project (see Chapter 3 Modue 1, step 3). Interaction indicators Measure the interaction between the context and the project (see Chapter 3 Modue 1, step 2c). Confict indicators Confict anaysis provides just a snap-shot of a highy fuid situation. It is therefore important to combine an in-depth anaysis with more dynamic and continuous forms of monitoring to provide up-to-date information from which to measure the interaction between the context and the intervention. Indicators are usefu in this respect, as they hep reduce a compex reaity to a few concrete dimensions and represent vauabe pointers to monitor change. The confict anaysis wi have ooked at the reationship between specific actors, causes and profie, in order to gain an understanding of the confict dynamics. Indicators can then be deveoped in order to refect these reationships and how they evove over time. It is important to have a mix of perception-based and objective indicators, each of which shoud refect quaitative and quantitative eements. Good indicators refect a variety of perspectives on the context. It is good practice to invove communities and other actors in identifying the indicators; not ony shoud this produce better indicators but it is aso an important opportunity to buid a common understanding of the context, to ascertain joint priorities and to agree on benchmarks of progress. Since each confict is unique, there is no standard ist of indicators appicabe to a contexts. The foowing tabe provides some exampes of sampe perception-based and objective indicators for the four key eements. TABLE 1 Sampe of confict anaysis indicators Key eement Exampe Sampe Indicators (a)objective and (b) perception-based Profie Geographic mobiisation around natura resources (a) What is the price of timber? How has it evoved over time? (b) (In the view of the respondent) How has confict intensity changed around this particuar area? Causes Human rights abuses (a) Has the number of poitica prisoners risen or faen? (b) To what extent can you/others openy criticise the government? Actors Diaspora (a) Have overseas remittances increased or decreased? (b) To what extent does the diaspora support or undermine the peace process? Dynamics Increased commitment to resove confict (a) Has the frequency of negotiations increased or decreased among confict parties? (b) Do you beieve that party X is committed to the peace process? Note: the exampes in Tabe 1 reate to each specific key eement ony (eg sampe indicators for profie have no reation to the exampe or sampe indicators for causes).

27 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Integrating confict anaysis and other forms of assessment At a eves, humanitarian, deveopment and peacebuiding organisations use some form of pre-intervention assessment of the context in which they operate in order to identify entry points and pan their work. This is usuay caed a needs assessment. Needs assessment frameworks, such as sustainabe iveihoods assessments, participatory poverty assessments, participatory rura appraisas, good governance assessments and gender anayses can usefuy be compemented by confict anayses, and vice versa as expained beow: assumptions about context: iveihood, poverty and governance frameworks assume static situations and therefore provide itte guidance on how to dea with changing and fuid contexts. Confict anaysis thus heps to better understand these environments focus: iveihood and poverty assessments take the individua househod as a starting point, seeking to estabish the economic, poitica, socia and cutura factors affecting the ives and iveihoods of its members. This perspective is a vauabe addition to the top-down view of confict anaysis. In practice, however, these approaches often describe rather than expain poverty and tend to negect issues of poitics and power. There is itte scope, for exampe, for exporing competition and expoitation. There aso tends to be a ack of attention to the impications of weak poitica systems, bad governance and instabiity for househods iveihood strategies. Governance assessment frameworks dea with these issues, too, but usuay under the assumption of peacefu poitica competition and wiingness to reform. These assumptions might be questioned by a confict anaysis (see section 2.5) externa / interna view: poverty and other participatory forms of assessment hep understand peope s individua perspectives and experience. These are often missing from confict anaysis, which tends to pace more emphasis on the interests and strategies of organised poitica actors. Not infrequenty, confict anayses are conducted from an outside perspective. It is important to recognise the distinct frameworks underying confict anaysis and other forms of needs assessment. In practice, however, there is a growing effort and acknowedged need to carry out an integrated research and anaytica process that takes account of both perspectives. The foowing tabe provides some preiminary entry points for integrating confict anaysis into needs assessments. TABLE 2 Entry points for integrating confict anaysis into needs assessment Beyond describing poverty, focus on its potentia causes, examine the impact of power and poweressness on poverty and estabish the sources of power in the particuar community. Refine the understanding of group membership and group identity and how they affect vunerabiity (eg persecution, expoitation). Examine how the wider confict dynamics impact on institutions and reations within the community, understand processes of dominance, aignment and excusion. Link oca processes (eg dispacement) to poitica and economic interests and strategies at regiona and nationa eves (eg and appropriation, war economy). 5. Good practice in confict anaysis The foowing section addresses key concerns in reation to undertaking confict anaysis, as the confict-anaysis process itsef needs to be confict sensitive. This section offers exampes of good practice based on consutations in Kenya, Uganda and Sri Lanka. Buiding capacity for confict anaysis Conducting confict anaysis requires human and financia resources, which organisations may find hard to afford, especiay if confict sensitivity has not yet become a mainstreamed poicy within the organisation (see Chapter 5). As a resut, this may require systematicay and sustainaby buiding the need for confict anaysis into funding appications (for civi society organisations), budgets, panning guideines, and human and organisationa deveopment pans. According to the eve of awareness and capacity in your organisation, capacity buiding for confict anaysis may invove: heping staff to better understand the context in which they work. For exampe, in post-confict contexts, staff

28 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 of internationa organisations often do not recognise the inks between their work and possibe vioence. Loca government or civi society staff, on the other hand, may be too invoved at the micro eve to see the arger picture making sure organisations give confict anayses and their integration equa priority to other forms of assessment (governance, poverty, needs assessments, etc) (see Section 4) wherever possibe, integrating confict anayses into estabished procedures (eg strategic pans, needs assessments, etc), as we as into the contributions of service providers (eg terms of reference for short-term advisors, cas for proposas / tenders, etc). When preparing such processes, it is fundamenta to make sufficient time to accommodate confict anayses budgeting for confict anaysis in funding appications and operationa budgets. Donors (and the tax payers to whom donors are accountabe) may need to be sensitised to the importance of confict anaysis. NGOs often find that donors either (a) assume or even require that confict anaysis be conducted at the project proposa stage, without being aware of its costs for smaer organisations; or (b) do not prioritise confict anaysis at a supporting staff in acquiring confict anaysis skis on an ongoing basis, for exampe through staff deveopment pans deveoping an externa network of nationa and internationa experts on which to draw for specific tasks. Who conducts the anaysis? Confict anaysis can be undertaken for various purposes. The purpose wi determine the specific process and wi hep to determine who shoud conduct the anaysis. For exampe, if the purpose is to promote a participatory and transformative process within a community, the community shoud pay a vita roe in the panning, impementation (eg data coection) and assessment of the anaysis. If the purpose is to deveop a strategy for engagement in a given context, it may be that an interna team from within the organisation deveoping the strategy shoud ead the process. Some eements of the anaysis may be highy sensitive, and thus may need to be confidentia. Loca project staff typicay conduct participatory confict anaysis exercises with communities to decide on further project activities. Confict anaysis, in the context of project monitoring by internationa NGOs, is frequenty carried out by nationa and internationa staff, sometimes with the support of an externa adviser. Donors tend to commission externa experts or speciaised institutes in their own countries for countrywide confict anaysis studies, whie governments may have dedicated departments to dea with specific confict issues. In any case, it is important to get the right mix of skis and backgrounds, which can be summarised as foows: good confict anaysis skis good knowedge of the context and reated history sensitivity to the oca context oca anguage skis sectora / technica expertise as required sufficient status / credibiity to see through recommendations good knowedge of the organisations invoved representation of different perspectives within the context under consideration moderation skis, team work, possiby counseing faciitation skis. The quaity and reevance of the anaysis mainy depends on the peope invoved. These incude the person or team conducting the anaysis, on the one hand, and other confict actors, on the other. Confict anaysis consists of eiciting the views of the different groups and pacing them into a arger anaytica framework. The quaity of the anaysis wi depend on how faithfuy it refects the views received views may be distorted or given too much or too itte weight during the fitering process, either inadvertenty or deiberatey. It wi aso be infuenced by how the team is perceived by various actors within the context. For exampe, if the team is trusted by a actors, they are ikey to get more and better information than if they are perceived to be too cose to certain parties. Every confict anaysis is highy poitica, and bias is a constant concern. It may be difficut to be objective, as persona sympathies deveop and make it difficut to maintain an unbiased approach. Even a fy-in expert wi be infuenced by his / her vaues, previous knowedge of the country, the perspectives of his or her empoyer, and the peope s / he is working with. It may therefore be more productive to spe out one s own position and preconceptions and be cear about the conditions and restrictions under which the confict anaysis takes pace. The coective basis of the confict anaysis team may aso ensure higher eves of objectivity and impartiaity. Seecting the appropriate framework for confict anaysis When panning to use a specific framework to support confict anaysis, it is worth considering its strengths and weaknesses. In genera, organisations may find that toos do not necessariy offer new information, particuary if they have aready deveoped strong inkages to institutions and communities in the area under consideration. Their main vaue ies in guiding the systematic search for this information and providing a framework for anaysing it, thus prompting critica questions and offering new perspectives. Toos can aso enhance interna

29 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 9 communication about confict within an organisation, eg between provinces and the capita, or between fied offices and headquarters. Simiary, confict anaysis toos can guide consutation with a range of communities and other stakehoders. Finay, internationa actors appreciate that standardised toos ensure a certain degree of comparabiity between different confict anayses. On the other hand, confict anaysis toos shoud not be mistaken for a substitute for detaied oca knowedge and human judgement nor stife creative thinking. Toos that offer pre-defined ists of structura causes or indicators may be too genera to adequatey capture a specific confict. Toos may aso be too comprehensive for an organisation with imited research capacities, or not focussed enough to answer specific questions. For these reasons, organisations wi tend to customise existing toos to their own specific needs, objectives and capacities. BOX 7 Adapting toos for Northern Uganda In Uganda, a consortium of INGOs and government representatives consensuay deveoped a hybrid confict anaysis too that best met their needs and at the same time hed maximum reevance in the Northern Uganda context. The hybrid too deveoped by the consortium uses the profie-actors-context framework outined in Figure 2 above, with components of toos deveoped by Word Vision, ACORD and Oxfam in Uganda, the Loca Capacities for Peace Project (Do No Harm), and various other toos. The consortium then used the too they had deveoped to conduct a shared confict anaysis and to coectivey buid the capacity of their fied staff to conduct and update simiar anayses in the future. (The capacity buiding and fied research work is sti ongoing at the time of writing). There are some further issues around toos that organisations shoud consider: visua aids (eg graphs) and indicator ratings used in some toos suggest a degree of precision and objectivity that usuay does not stand up to reaity. Participants in a confict anaysis shoud therefore be encouraged to refect on the subjectivity of their assessments toos reying on some technica support (eg software) may appear intimidating to some participants. Simiary, extensive ists of indicators tend to make the anaysis unmanageabe in genera, aim to create a safe space for extensive discussions. Coecting information for confict anaysis It is important to gather information from as wide a range of sources as possibe and to isten to many different actors, in order to broaden the understanding of the context and to incude a wide range of perspectives (see Box 3). BOX 8 FORED Sri Lanka FORED undertakes surveys with women in target communities (women are FORED s main beneficiaries) to understand the socio-economic situation of the community. To gain the trust and confidence of the women, fied staff visit the famiies and spend time with the women in the kitchen, heping them with their tasks. Information gathered in the questionnaire is thus compemented through indirect cross-referencing from these informa chats. Information is further trianguated (see Box 9) with knowedgeabe community eaders. Various techniques can be used to gather these perspectives, from surveys and interviews to group discussion and stakehoder consutations (see Box 4). In contexts where groups cannot openy and directy discuss confict, it may be usefu to consider having separate meetings. Meetings and interviews must be conducted in a anguage in which participants can confidenty express their views. BOX 9 Stakehoder consutations Internationa and government agencies now routiney use stakehoder meetings to coect information in preparation for certain poicy decisions. They typicay hod one or a series of workshops in the capita and arge district towns, to which representatives of different interest groups (eg oca government, private sector, civi society, etc) are invited, to discuss specific issues. Athough an improvement on former practices, this form of stakehoder consutation presents a number of difficuties: one-way communication: where participation is misunderstood to mean heping to impement poitica decisions rather than heping to shape them, meetings wi be used to announce work pans and expected commitments, rather than to get feedback ack of capacity: grassroots representatives often do not fuy grasp the context of the meeting or have difficuties in discussing certain issues power: peope bring their power reations with them into the meeting room, and it is unreaistic to expect ow-ranking peope to speak up against their superiors/patrons in pubic. For the same reason, it is difficut to discuss confict issues process fatigue: participants who have repeatedy undergone consutations tend to voice soutions, before going through the step-by-step process that eads to the identification of core issues marginaisation: women and other marginaised groups usuay ack equa representation. Participants typicay over-represent we-educated, reativey weathy urban eites. Care therefore needs to be taken to incude representation from both urban and rura communities as we as poor communities (whether urban or rura).

30 10 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 The information gathered wi not a be reiabe. Gatekeepers such as oca eaders and interpreters may try to infuence information. Ordinary peope wi rarey dare to speak up against them in pubic or even in private. Information is aso argey determined by access. Aid agencies report restrictions of access by the nationa government, their own governments, or oca strongmen, which imit the type of information they are abe to gather. In certain contexts, when information is a scarce commodity, it tends to become highy poitica. There nonetheess exist some research methods, such as trianguation, which aim to reduce some of these imitations (see Box 10). BOX 10 Trianguation Given the difficuties of obtaining reiabe information for undertaking confict anaysis, it is often usefu to use a mix of data gathering methods ( trianguation ) for exampe a desk study, quantitative surveys, expert interviews, stakehoder consutations, and feedback workshops to present and discuss concusions. The aim of trianguation is to verify each piece of information with at east two corroborative or compementary sources, to obtain data that eventuay matches up and carifies differing perspectives. (For more information about trianguation, see Chapter 3, Modue 1, section 3.2). Conducting the anaysis Confict anaysis requires a great dea of care and sensitivity due to the highy poitica nature of the information gathered. A participatory process can become transformative by heping participants to define their own confict an important step towards addressing it. Because confict anaysis touches on sensitive issues such as power, ownership, and neutraity, however, it can aso provoke confict by bringing sensitive issues to the fore. For this reason, the confict anaysis itsef needs to be carried out in a confict sensitive manner. It is thus good practice to get stakehoders on board eary on and avoid antagonising potentia spoiers (see section 2.3). In particuar, when undertaking the confict anaysis, it is important to show respect for peope s ownership and feeings, to incude a wide range of actors and perspectives, to be transparent about the goas of the process and to ink the anaysis to demonstrabe action. In many contexts, it is fundamenta to ensure that staff, partners and communities are not at risk through the anaysis process, for exampe as a resut of insensitive questions being asked in pubic or researchers being sent to insecure areas. In such situations, the commitment to transparency may need to be restricted by the need to ensure security for some sensitive eements of the anaysis. The confict anaysis process can aso hep foster partnership and co-ordination, whie promoting a shared understanding of the context. The joint donor government / civi society confict assessment in Nigeria (see Box 11) may prove a vauabe experience from which to earn. BOX 11 Strategic Confict Assessment in Nigeria: An incusive and muti-stakehoder approach1 In Nigeria, a radicay different approach has been taken to conducting a confict assessment at the strategic eve. First, the assessment has been country owned with the Institute for Peace and Confict Resoution (IPCR) taking the ead. The IPCR is inked directy to the Nigerian Presidency and was estabished by the Nigerian government in Second, the assessment has been supported by a muti-donor group consisting of four main donors DFID, the Word Bank, USAID and UNDP. Third, civi society actors have been invoved in the process strategicay from the outset. Background and objectives The incusive and joint approach to undertaking the Strategic Confict Assessment (SCA) was adopted by both the Nigerian government and the supporting donors, in recognition of a number of issues which needed addressing. These were: a ack of coherent anaysis of the causes and dynamics of confict in Nigeria a ack of coordination in the anaysis and responses to confict by the government, civi society and donors (with civi society focusing mainy on oca / micro confict issues and responses, whist at a more macro eve the government found it difficut to understand the inkages between the different conficts affecting the country) a recognition by donors that if any donor undertook such an assessment uniateray, or even coectivey, without the consent of the Nigerian government, it coud resut in considerabe obstaces and high poitica risks, due to the sensitive nature of confict in Nigeria. A joint approach woud reap considerabe benefits in reducing those risks. The overa objective of the SCA was to provide an anaysis of confict in Nigeria which ooked at a areas of nationa ife and woud feed into the strategic, or poicy, eve in order to inform nationa and internationa debates about possibe responses and provide specific recommendations to government, the internationa community, the private sector and civi society. The study aso aimed to deveop and inform the IPCR s own work and capacity. Process and methodoogy The process was initiated in May 2002 with an incusive workshop of stakehoders incuding the donors, government and a broad range of civi society groups. The objectives of the workshop were to buid knowedge of reevant activities being undertaken by different groups (who is doing what and where); to provide a basis for buiding awareness of the confict assessment process, providing space for feedback from different stakehoders; and to strengthen the interaction and reationship between the different actors.

31 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 11 The methodoogy used in the SCA was based on the DFID Confict Assessment Guidance (see Annex 1) but adapted through modifications by the IPCR and fied teams (researchers). The SCA was undertaken by teams of IPCR and consutants in two phases: Phase one invoved desk-based research mapping the causes, actors and dynamics of confict, based on written sources. Phase two tested the findings of phase one through fiedwork carried out by research teams in a the Nigerian states which endeavoured to invove different stakehoders and interest groups. Phase two aso focused on considering responses and poicy options. A team eader coaborated in the writing of a summary report for each phase. The phase two report was aso scrutinised in a technica workshop in October 2002 invoving a technica pane comprised of experts from the different stakehoder groups (government, donors and civi society). Outcome and next steps In terms of future responses, the phase two report provides a detaied agenda for change on the poitica stage. Recommendations are directed at the different actors, incuding the federa government, state governments, oca governments, civi society, the internationa community and the IPCR itsef. They are divided into recommendations that need immediate, medium term and ong-term action (those on which work can start now but where resuts are not expected for 8-10 years). In particuar, the report recommends immediate attention to eary warning and confict prevention in recognition of the ack of Nigerian eary warning systems and the absence of systematic provision for preventative responses. The report identifies an over reiance on and imited or even negative effect of miitary responses. In order to share the research findings a further stakehoder workshop was hed in March 2003 which considered the issue of what next and the roes of different stakehoders in taking the findings forward. The discussion was centred on a number of themes security sector reform and sma arms, eary warning and eary response, poitica confict, socia and economic causes, the roe of civi society and mainstreaming into donor and government action. Foowing from the phase 2 report and stakehoder workshop, a Nationa Action Pan (NAP) has been drafted which outines a concrete agenda for taking forward the recommendations in the report, incuding a strategy for mainstreaming confict sensitivity within government institutions. In terms of progress to date, the SCA process has produced a number of demonstrabe steps forward in terms of promoting confict sensitivity in the Nigerian context. These incude: steps by the Nigerian government to integrate the findings of the SCA into the PRSP process steps taken by donors to review their strategies and approaches on the basis of the anaysis an increased sense of awareness and empowerment by civi society of the roe they can pay in pushing the agenda forward. 6. Choosing the right framework for confict anaysis This section aims to provide guidance on seecting a confict anaysis too from Annex 1, which best corresponds to the needs and capacities of specific organisations. At this point, it is important to note that the toos incuded in the Resource Pack were seected according to the foowing criteria: sufficient documentation avaiabe to describe the toos adequatey each too was used by at east one organisation the toos cover both micro and macro-eve confict anaysis the toos represent a wide range of approaches to confict anaysis (especiay in terms of targeted audiences and fieds of interventions). Athough the project team has gone to some engths to document the practice and experience of smaer, particuary Southern, organisations (especiay in Kenya, Uganda and Sri Lanka), a brief gance at the ist of toos reveas that most have been deveoped by Northern NGOs and donor agencies. Their perspective on confict is therefore argey externa, thus refecting the current state of pay in the area of forma confict anaysis. In the context of North / South reations, it may therefore be important to enhance cross-fertiisation and shared earning on confict anaysis and the deveopment of confict anaysis toos. The checkist poses a number of questions that can hep organisations think about the type of confict anaysis too they need. It is not comprehensive and wi need to be further adapted to each organisation.

32 12 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Checkist for seecting a confict anaysis too 1. Purpose Does the too provide the information you need for your work? Is the proposed process of confict anaysis consistent with your aims? 2. Assumptions Do you share the too s specific understanding of confict? Does this perspective correspond to the mandate and vaues of your organisation? 3. Methodoogy Does the proposed methodoogy match the purpose of the anaysis? Does the proposed methodoogy agree with the ways of working of your organisation? How ong does it take to gain resuts? 4. Resource impications What are the resource impications of the seected too (staff time, trave, seminar costs, faciities, data management)? Is your organisation abe to aocate the required resources? 5. Avaiabiity Is the too avaiabe at the time and cost that suit you? Can fu documentation be accessed? TABLE 3 Summary of confict anaysis toos isted in Annex 1 Purpose Leve Potentia users Assumptions Methodoogy Resources 1. Strategic Confict Assessment (SCA) - DFID - DEV* Country/regiona strategic panning, can aso be appied to projects/ programmes Regiona, nationa, oca DFID and partner biatera / mutiatera agencies desk officers Combine poitica and economic dimensions; greed/grievance; structures and actors Combination of desk study and fied consutations Assessment team (5 peope). Consutation meetings in-country 2. Benefits / harms handbook - CARE - DEV/HA Anaysis, impact assessment and project (re)design Loca mainy project eve NGO project managers, fied staff Focus on rights-based approach Desk-based and fied research and possibe workshop consutations Varies few hours in emergencies to more detaied workshops / consutations 3. Confict Anaysis Framework (CAF) - Word Bank - DEV Country strategic panning Nationa, can aso be adapted to (sub) regiona Mutiatera organisation desk staff / panners Focus on socio-economic dimensions of confict Checkist; Desk studies, workshops, stakehoder consutations, consutants Fu CAF anaysis resource intensive (workshops, consutations, consutants); but can be simpified 4. Confict anaysis and response definition - FEWER - PB Eary warning, country strategic panning Nationa, oca Dipomats, donor desk officers, NGOs Focus on confict dynamics Ongoing anaysis by oca civi society organisations Modest for desk study; more for training or workshops

33 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 13 Purpose Leve Potentia users Assumptions Methodoogy Resources 5. EC Checkist for root causes of confict - European Commission - DEV Eary warning, strategic and programme panning Nationa, regiona Muti- and biatera donor desk officers, dipomatic actors Focus on structura root causes of confict Checkist; externa research capacity Limited as mainy desk-based 6. Working with confict: skis and strategies for action - Responding to confict - PB Confict anaysis, programme panning Loca, nationa Loca and INGO staff, fied and headquarters Focus on understanding conficts Coection of toos for participatory confict anaysis Limited depending on format (workshop, consutation meetings etc) 7. Making Sense of Turbuent Contexts (MSTC): Anaysis toos for humanitarian actors - Word Vision - DEV / HA Confict anaysis, project panning Nationa, regiona NGO emergency response, deveopment and advocacy staff Focus on chronic poitica instabiity, dovetais with Do No Harm Coection of toos, fexibe appication Variabe, depending on use of toos, desk study or consutations 8. Do No Harm / Loca capacities for peace project Confict anaysis, project monitoring and impact assessment Loca Donor, NGO (internationa and oca) staff Focus on dividers and connectors in confict Workshop, integration into standard procedures Limited, for workshop 9. Confict and Poicy Assessment Framework (CPAF) - Cingendae Institute - DEV / F Confict anaysis, country strategic panning Nationa, sectora Donor and embassy staff Focus on indicators of interna confict and state faiure Externa research capacity, workshops Costs of preparing for and hoding workshops, can incude externa consutant invovement 10. Eary Warning and Preventive Measures - UN Staff Coege - ALL Eary warning, confict anaysis, design Nationa UN staff (HQ and fied), other donor agencies or NGOs Focus on human security and human rights framework Training/workshop setting Training materias, faciitation, workshop / training costs 11. Confict assessment framework - USAID - DEV Confict anaysis, country and project panning Nationa Donor desk officers, impementing partners, other US government officias Broad scope, synthesis of other toos Desk study, workshop, foow up integration into programming strategy For desk study, in country visit and foow-up work. 12. Confict anaysis for project panning and impementation - GTZ - DEV Confict anaysis, country and project panning Nationa, project Donor, NGO desk officers, project managers Broad scope, synthesis of other toos Combination of desk study and empirica research, toos for participatory confict anaysis Costs of organising workshops and consutation meetings

34 14 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Purpose Leve Potentia users Assumptions Methodoogy Resources 13. FAST methodoogy - Swiss Peace - DEV / FP Eary warning, risk assessments Nationa, can be sub-regiona Government ministries, deveopment agencies, NGOs, internationa organisations Event data anaysis (quantitative and quaitative) Fied information coection, desk-based anaysis Resource intensive for maintaining oca information networks and speciaist anaysis network 14. Confict diagnostic handbook - CPR / CIDA - PB / DEV Confict and stakehoder assessment Country, regiona Deveopment practitioners Devising evidence-based peacebuiding strategies Mainy workshop setting anaysis Costs of organising and presenting workshop 15. Better Programming Initiative - IFRC - HA Confict assessment, training Programme; oca, nationa, regiona Red Cross/Red Crescent Nationa Societies, deegation and other staff Focus on aid fostering ong-term reconciiation and recovery Anaysis and training Depending on scope of assessment or ength of training *Fied of activity DEV Deveopment HA Humanitarian Assistance PB Peacebuiding FP Foreign Poicy 7. Endnotes 1 Programme team research. See aso, Federa Government of Nigeria, Strategic Confict Assessment Nigeria: Consoidated report, Institute for Peace and Confict Resoution, October 2002.

35 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 15 Annex 1: Toos for confict anaysis are reshaped in protracted conficts. Main steps and suggested process The methodoogy is based on the foowing three anaytica steps: 1. Strategic Confict Assessment Version / Date of issue January 2002 Name of organisation DFID Author(s) Jonathan Goodhand, Tony Vaux, Robert Waker Primary purpose Confict anaysis and panning too (mainy to prepare country/regiona strategies, aso appicabe to individua projects and programmes). Suggested purposes are to assess: risks of negative effects of confict on programmes risks of programmes or poicies exacerbating confict opportunities to improve the effectiveness of deveopment interventions in contributing to confict prevention and reduction. Intended users Principay aimed at staff at DFID and partner biatera and mutiatera agencies. The methodoogy can be used as the basis for regiona, nationa and oca eve anaysis in order to map responses and their impacts to date, and to deveop strategies and options for more confict sensitive poicies and programmes. Leves of appication Regiona / country eve and oca eve. Conceptua assumptions The Strategic Confict Assessment (SCA) methodoogy is intended as a fexibe framework that can be adapted as needed, rather than a standardised approach. The conceptua basis for the SCA is the combined use of the foowing anaytica enses : the poitica economy approach that focuses on the poitica and socia interests of those engaged in confict, drawing attention to those who may benefit from the continuation of the confict anaysis of the causes of confict in terms of greed (opportunities for accumuation or benefit from confict) and grievance (negative reactions of those who are disadvantaged) combined anaysis of structures and actors and how they interact with one another identification of the different ayers/dimensions of the confict (internationa, regiona, nationa and oca) recognition of the dynamic character of conficts, which may mean that root causes of vioent confict change and Within each step, the foowing areas are investigated: A. Confict anaysis 1. Structures Anaysis of ong-term factors underying confict: security, poitica, economic, socia 2. Actors Anaysis of confict actors: interests, reations, capacities, peace agendas, incentives 3. Dynamics Anaysis of ong-term trends of confict, triggers for increased vioence, capacities (institutions, processes) for managing confict, ikey future confict scenarios B. Anaysis of internationa responses 1. Internationa actors Map interests and poicies of internationa actors: miitary and security, dipomatic, trade, immigration, deveopment Assess eve of coherence Anayse impacts on confict dynamics. 2. Deveopment actors Map magnitude and focus of deveopment poicy/programmes Anayse deveopment actors approaches to confict: in, on or around? Assess capacities to work effectivey in and on confict Assess potentia to infuence confict and peace dynamics. 3. Interactions between deveopment interventions and confict Assess impact of confict on deveopment poicy and programmes Assess impact of deveopment interventions on dynamics of confict and peace. C. Deveoping strategies and options Identify possibe strategies in terms of: 1. deveoping common donor approaches to better respond to confict 2. deveoping confict sensitive individua donor approaches 3. adjusting current activities working in or on confict, deveoping new initiatives.

36 16 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 The foowing process (for a donor country assessment) is suggested: Desk study Review of reevant documents from a variety of sources Interviews with key stakehoders in the donor country. Fied work Interna consutation with donor staff (deveopment agency, embassy) Stakehoder consutation (possiby series of workshops with range of stakehoders within and outside the capita) Debriefing workshop with donor staff and sma expert group to feed back and discuss resuts. Drafting confict assessment document Guiding questions / indicators The too provides usefu exampes of sources of confict and tension, confict actors, confict triggers, confict scenarios, donor poicy instruments and possibe confict prevention strategies. The exampes refer to specific countries; no genera ists are provided. Required resources Suggested composition of a country-eve confict assessment team: team eader (18 working days) internationa consutant (25 working days, incudes preparation of fina report) two in-country project consutants (10 working days each) confict adviser (10 working days) socia deveopment adviser (10 working days). However, this wi depend on the context in which the confict assessment framework wi be appied, the end users of the anaysis, and their objectives. Current appications DFID has appied the confict assessment methodoogy to a range of country studies, incuding Nepa, Kyrgyzstan, Modova, Sri Lanka and the Caucasus. There has aso been a muti-donor assessment in Nigeria, which incuded DFID, on the basis of the SCA framework. Lessons earnt The foowing methodoogica and practica essons have been earned from appying the Strategic Confict Assessments (SCAs): SCAs have improved the quaity of anaysis across UK government departments and encouraged a more joined-up approach. They have provided a framework within which to assess new proposas and have been usefu in designing coherent, strategic interventions. there is a need to determine the SCAs target audiences and purpose in the design phase. A imited audience enabes a more critica anaysis, whereas a wider audience necessitates more sensitivity and potentia watering down. If other reevant ministries are invoved and have a serious stake in the outcome of the process, a strongy worded anaysis coud imit efforts to engage in subte dipomatic pressure. there is a need to be cear about why and when to conduct SCAs; in particuar, they shoud be timed to coincide with a natura pause or turning point in the programme cyce, or before aunching a new programme. composition of the team is a crucia eement in its success; it is important to encompass expertise from a number of different areas in order to widen and deepen the quaity of the anaysis. It is aso good to have a combination of externa and oca consutants. there is a need to achieve the right baance between contextua anaysis and programme design. In this sense, it is important to have as wide an anaysis as possibe so that the compexity of the confict coud be propery understood before converting it into programme ideas. precise recommendations on what action to take next bring added vaue to SCAs. They aso hep overcome the feeing that the process coud be an extra burden, eg describing exacty what response needs to be taken, who shoud be responsibe for taking it, which NGO to work with, and how much funding woud be required. it is essentia to have active participation of in-country staff to inform the purpose and approach and a staff member dedicated to the foow-up and impementation of recommendations. SCAs shoud be conducted in a timeframe of about six weeks up to two months, depending on the depth and scope of the study. A minimum of two weeks for fied research and two weeks for the writing-up process is recommended. Reports shoud be pubished immediatey after the assessment to guarantee timey reevance. the practica appication of the SCA depends on the confict expertise of the users and whether or not they ask the right questions. Less experienced staff may require induction, training and support. (A different approach was foowed in the Strategic Confict Assessment in Nigeria in that an NGO ed the process and support came from 4 different donors (incuding DFID). The essons earned from that process are therefore different). Commentary on the too The too presents a very comprehensive form of confict anaysis, but with a methodoogica basis that is designed to be taiored to suit specific contexts and end users. Some parts of the anaysis outputs may become out of date quicky, and a higher eve strategic assessment may not be appropriate as the basis for designing micro-eve projects or sectora interventions without further specific contextua anaysis. It woud therefore be idea to compement the confict assessment methodoogy with a ighter too for more continuous monitoring of the programme and confict situation. The too can be used at any point in the programming cyce and at various points in the confict cyce in a country (ie pre-confict, post-confict etc). Avaiabe reports The Strategic Confict Assessment (Conducting Confict

37 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 17 Assessments: Guidance Notes) is avaiabe on the DFID website, under the Confict and Humanitarian Affairs Department ( Reports on confict assessments on Sri Lanka and Kyrgyzstan, as we as a synthesis report on Kyrgyzstan, Modova, Nepa and Sri Lanka are aso avaiabe on the above website. A essons earned report on the Strategic Confict Assessment in Nigeria (conducted by the Institute for Peace and Confict Resoution in the Nigerian Presidency, with support from DFID, the Word Bank, USAID and UNDP) is avaiabe by contacting the address beow. Contact detais Department for Internationa Deveopment Confict and Humanitarian Affairs Department 20 Victoria Street London SW1H 0NB Emai: [email protected] Te: 0044 (0) Fax: 0044 (0) Benefits / harms handbook Version / Date of issue September 2001 Name of organisation CARE Author(s) Pau O Brien Primary purpose To hep humanitarian and deveopment workers take responsibiity for the impact of their work on peope s human rights. It offers a set of simpe interrogative toos that hep staff think more deepy and effectivey about the impacts of their work, and taking responsibiity for both positive and negative impacts. It aso provides a framework for monitoring potentia negative or unintended impacts, as we as ways to mitigate these. Intended users NGO project managers and other fied staff and consutants working in the areas of deveopment and humanitarian assistance. The methodoogy may aso be of interest to nationa government officias and possiby donors. Leves of appication Project eve, athough the concepts coud be appied at other eves as we. Conceptua assumptions 1. Human-rights approach CARE s human rights-based approach to reief and deveopment presupposes that a peope are entited to certain minimum conditions of iving with dignity (human rights). Reief and deveopment organisations aim to hep peope achieve these conditions, thereby acknowedging their human responsibiity to do so. This impies they take responsibiity for the human rights impact of their work whether positive or negative. Human rights are therefore the centra criteria for anaysing the overa impact of a project. 2. Anaytica framework The methodoogy is based on three categories of human rights and impacts: poitica rights and impacts (eg right to equaity and recognition before the aw, right to a fair tria, freedom of thought and expression, right to association and poitica participation) security rights and impacts (eg right to ife, iberty, security of person, movement, freedom from torture, forced dispacement, degrading treatment, sexua assaut, arbitrary arrest) economic, socia and cutura rights and impacts (eg iveihood security, nutrition, food security, water, heath, education, cean environment, sheter, participation in one s cuture).

38 18 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Main steps and suggested process The benefits / harms handbook contains toos for situation anaysis (profie toos), impact assessment (impact toos), and project (re)design (decision toos). In particuar: profie toos hep users gain a more comprehensive understanding of the contexts in which they work impact toos hep users think about the unintended impacts of their work decision toos hep users work through difficut decisions when there is a rea danger of harming peope with an intervention. The handbook assumes that most of the information required to answer the toos questions is aready avaiabe from the organisation s fied staff. Further information can be gathered from individuas famiiar with the oca situation, who are invited for consutation. If the organisation has been working in the area for some time aready, it is recommended to hod a workshop inviting midde-eve and fied staff as we as oca experts. For assessing a new project, the questions in the toos may be put to the oca community in a sensitive way. it takes organisationa commitment to make them work. Avaiabe reports An eectronic copy of the handbook is avaiabe on request. Contact detais Pau O Brien Afghanistan Poicy Advisor, CARE Internationa E-mai: [email protected] Dan Maxwe East Africa Regiona Programme Coordinator, CARE Internationa E-mai: [email protected] Guiding questions / indicators The profie, impact and decision toos are organised according to the three categories of human rights, namey: poitica, security and economic, socia and cutura rights. In addition, the profie too aso focuses on rights, responsibiities and underying causes, in order to hep users think about the underying causes of any human rights probem. To this end, consideration is given to the actions, attitudes and artifices (eg systems and structures) that cause the rights probem. Required resources Depends on the required research. A few hours taking through the profie toos with oca staff are considered enough in emergency situations. Otherwise, workshops with fied staff, decision makers and possiby additiona experts are recommended. Current appications Projects in East Africa must conduct a benefits / harms anaysis before starting impementation. The intention is twofod: to conduct such an anaysis prior to impementation to ensure that the benefits / harms thinking aso pervades the project impementation, monitoring and evauation. Lessons earnt It is not possibe to design a totay harm-free project upfront, so that equa emphasis needs to be paced on the foow up, in the form of an ongoing benefits / harms anaysis during the project impementation, and the identification of ways to mitigate potentia negative impacts. Commentary on the too The benefits / harms toos themseves are fairy straightforward to use and capacity can be buit quicky. But

39 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Confict Anaysis Framework Version / Date of issue October 2002 Name of organisation Word Bank Author(s) Per Wam, Shonai Sardesai Primary purpose Confict anaysis too Intended users Desk officers / panners in donor deveopment organisations (Word Bank staff). Leves of appication Country eve, in preparation of country strategies, poverty reduction strategies, poicies and individua programmes. It can aso be adapted for use at the (sub) regiona eve. Conceptua assumptions The contribution of deveopment organisations, such as the Word Bank, to confict prevention is regarded as threefod: making countries more resiient to the eruption and escaation of vioent confict by strengthening participatory and incusive socia processes and institutions that may hep manage conficts in non-vioent ways addressing factors reated to confict and determine their inks with poverty - sources (incuding roots) of conficts; opportunities for groups to engage in vioent activities and the consequences of confict determining the factors that can be addressed through Word Bank assisted strategies, and the modaities through which they can best be managed. Main steps and suggested process The Word Bank s methodoogy incudes two stages, namey: a screening process, aimed to test whether it is (or not) appropriate to undertake a fu confict anaysis in the country under consideration. The screening considers a set of nine indicators of potentia vioence a fu confict anaysis process, on the basis of the Confict Anaysis Framework (CAF). The foowing steps are recommended for conducting a CAF-based confict anaysis: reinterpretation of existing information on the confict situation of a country aong the ines of the CAF (brief desk study) workshops with country speciaists to cover each of the six CAF categories and anaysis of variabes aong a set of specific dimensions, that wi hep determine a country s overa position reative to confict foow-up studies, as needed, on issues identified in the workshop and monitoring of issues identified as confict-sensitive stakehoder anaysis to identify and examine groups who have the abiity to affect poitica and socia change, incuding vioence, and the main groups who are ikey to be affected by such changes country consutation with different stakehoder groups, as needed concuding workshops to discuss integration of the above issues into the poverty reduction strategy, country strategy or other country programmes. CAF can be conducted as a stand-aone anaysis or integrated into a more comprehensive macro-socia anaysis (for more information, see ). Guiding questions / indicators A. Risk screening indicators Athough none of these factors aone is necessary or sufficient to determine the outbreak, escaation or resumption of vioent confict, they have been found to be statisticay highy reated to confict. B. Confict Anaysis Framework Categories of variabes Socia and ethnic reations, eg socia ceavages, group identity-buiding, bridging socia capita Governance and poitica institutions, eg stabiity of poitica institutions, equity of aw Human rights and security, eg human rights status, miitarisation of society, roe of media Economic structure and performance, eg income disparities, income changes Environment and natura resources, eg avaiabiity of and access to natura resources Externa factors, eg regiona conficts, roe of diasporas. Desk officers are encouraged to use their knowedge of the country to identify those variabes which seem most reevant to the confict in question. These variabes are anaysed according to the foowing dimensions: History / changes: how the variabe has deveoped/changed over a reevant time span? Dynamics / trends: what is determining the future path of the variabe and how is it ikey to deveop? Pubic perceptions: pubic attitudes and biases regarding the variabe Poiticization: how the variabe is used poiticay by groups and organizations; Organisation: the extent to which the variabe has ed to the estabishment of interest organisations, and / or infuenced poitica parties and miitant organisations Link to confict and intensity: how the variabe contributes to confict and the current eve of intensity Link to poverty: how the variabe reates to poverty. Based on the anaysis of variabes, desk officers are aso

40 20 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 encouraged to examine inkages between variabes. Required resources Considerabe resources are required to conduct a fu CAF, incuding expert workshops, stakehoder consutations and the depoyment of consutants. Whie a fu CAF (desk and fied work) may require considerabe resources, this is not a necessity. It is possibe to conduct a CAF via a simper and ess expensive process, incuding two to three-day workshops, desk studies, etc. It is aso possibe to adapt CAF to the country context by identifying a few confict sensitive variabes and monitoring them on a reguar basis. Current appications CAF is being appied to Venezuea, Burundi (in co-operation with the Internationa Fund for Agricutura Deveopment (IFAD)), Rwanda and Somaia. Lessons earnt A essons earnt document on the above appications is being panned for the end of Commentary on the too N/A Avaiabe Reports The CAF methodoogy can be obtained at: [email protected]. Contact detais Per Wam / Shonai Sardesai Confict Prevention and Reconstruction Unit Word Bank Emai: [email protected] Website: 4. Confict anaysis and response definition Version / Date of issue Apri 2001 Name of organisation Forum on Eary Warning and Eary Response (FEWER), West Africa Network for Peacebuiding (WANEP), Centre for Confict Research (CCR) Author(s) FEWER (adapted by WANEP) Primary purpose Confict anaysis. It provides an anaytica and action framework, which wi hep pan preiminary responses to eary warning. Intended users Dipomatic and deveopment actors, mainy desk officers and poicy makers in foreign poicy and deveopment departments. Indigenous and internationa NGOs engaged in eary warning. Leves of appication Country eve, athough an adaptation of the methodoogy to ook at oca conficts has aso proven usefu. Conceptua assumptions The methodoogy is designed as a quick too, which can provide insight into overa trends. It is not meant as a substitute for more sustained confict anaysis, monitoring and consutations. The key assumption is: (a) Confict trends (b) peace trends +/- (c) stakehoder trends = overa trends. Main steps and suggested process Confict anaysis consists of four broad steps: 1. anaysis of confict indicators (root causes, proximate causes and confict triggers in the areas of poitics/security, economy and socio-cuture) 2. anaysis of peace indicators (systems, processes and toos sustaining peace in a given society, in the areas of poitics/security, economy and socio-cuture) 3. stakehoder anaysis (agenda/power, needs and actions of stakehoders in areas of poitics/security, economy and socio-cuture) In each of these three areas, the anayst is asked to estabish inkages and synergies between the indicators/stakehoders identified and buid three scenarios (best-case, status-quo, worst-case) 4. summary anaysis: using the above formuae, the predominant trends in the areas of confict and peace indicators as we as among stakehoders are brought together to determine overa confict trends. Again, three overa scenarios are formuated.

41 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 21 The methodoogy can be used for a desk study or to faciitate a confict anaysis workshop. Participants mainy draw on their existing knowedge of the confict, itte new research is required. Guiding questions / indicators For iustrative purposes, the methodoogy contains an extensive ist of confict and peace indicators for the Caucasus and the Great Lakes Region, which were generated during FEWER s eary warning activities. Required resources Modest resources are required for desk study, workshop or trainings based on the methodoogy. Current appications WANEP has been using this methodoogy internay for their own peace-buiding work, as we as training with other actors in most countries in West Africa (Nigeria, Niger, Ghana, Sierra Leone, Liberia, Senega, Gambia) and ECOWAS. WANEP has deveoped numerous poicy briefs incuding briefs on Côte d Ivoire, Guinea, and Liberia. Poicy briefs are targeted broady at various eves, incuding governments, the UN, ECOWAS, the EU and internationa NGOs. Their methodoogy has aso been appied in the form of a training of trainers in East Africa. The UN Department of Economic and Socia Affairs (UNDESA) aso asked WANEP to work on the provision of training on confict methodoogies, based on the FEWER/WANEP/CCR approach and experiences. Commentary on the too Athough primariy designed for country eve confict anaysis, the experience of appying the methodoogy has shown that in countries such as Nigeria and Ghana conficts are more ocaised, but with the potentia for nationa destabiisation. The adaptation of the methodoogy to ook at such oca eve communa conficts has proved usefu. Avaiabe reports The confict anaysis and response definition approach, as we as reated poicy briefs are avaiabe at and Contact detais West Africa Network for Peacebuiding (WANEP) Te: +233 (0) ; ; ; Fax: +233 (0) E-mai: [email protected] Website: Forum on Eary Warning and Eary Response (FEWER) Te: +44 (0) Fax: +44 (0) Emai: [email protected] Website: Lessons earnt Good anaysis is appreciated by stakehoders, incuding poicy makers, and aows track 1 at nationa eve to be infuenced in positive ways by track 2 peace-buiding and confict prevention activities. In Côte d Ivoire, the poicy briefs produced by the West Africa Eary Warning and Response Network (WARN) impacted on the Makousis and Accra Accords. The confict anaysis too provides a standard too which faciitates the production of easiy-digested poicy briefs. The too has served a usefu purpose in supporting the engendering of eary warning systems in West Africa. With the use of this approach, good confict anaysis enabed various assessments at various eves, from community to nationa eves. In turn, strategic programme panning and intervention processes were we faciitated. These vauabe essons emerged from civi society intervention programmes in Sierra Leone. In situations where vioence had escaated, faciitating a confict anaysis amongst primary and secondary confict stakehoders brought about carity in terms of appreciating outstanding issues and working coaborativey to resove the issues. Many conficts in West Africa thrive on confict systems that are ocated across nationa borders. Confict anaysis has infuenced poicy making to appreciate regiona approaches to confict prevention rather than imiting these approaches to what appear to be interna conficts.

42 22 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 5. EC checkist for root causes of confict Version / Date of issue 2001 Name of organisation European Commission Author(s) European Commission, based on the contribution of the Confict Prevention Network (CPN). Primary purpose Awareness raising / eary warning and pro-active agenda setting Intended users Decision makers and desk officers in biatera and mutiatera donor organisations. It is most reevant to dipomatic and deveopment actors Leves of appication Country and regiona eves. Conceptua assumptions N / A Main steps and suggested process The checkist is fied in by European Commission desk officers and deegation staff, on the basis of their genera knowedge of the country and other open sources of information. Subsequent statistica anaysis aows the addition of other quantitative data (eg UNDP Human Deveopment Index) and the custering of resuts according to category. Guiding questions / indicators The checkist uses the foowing root causes of confict / eary warning indicators: 1. egitimacy of the state: are there proper checks and baances in the poitica system? How incusive is the poitica/administrative power? What is the overa eve of respect for nationa authorities? Is corruption widespread? 2. rue of aw: how strong is the judicia system? Does unawfu state vioence exist? Does civiian power contro security forces? Does organised crime undermine the country s stabiity? 3. respect for fundamenta rights: are civi and poitica freedoms respected? Are reigious and cutura rights respected? Are other basic human rights respected? 4. civi society and media: can civi society operate freey and efficienty? How independent and professiona are the media? 5. reations between communities and dispute-soving mechanisms: how good are reations between identity groups? Does the state arbitrate over tensions and disputes between communities? Are there uncontroed fows of migrants/refugees? 6. sound economic management: how robust is the economy? Is the poicy framework conducive to macro-economic stabiity? How sustainabe is the state s environmenta poicy? 7. socia and regiona inequaities: how are socia wefare poicies addressed? How are socia inequaities tacked? How are regiona disparities tacked? 8. geopoitica situation: how stabe is the region s geopoitica situation? Is the state affected by externa threats? Is the state affecting regiona stabiity? In the origina too, each question is further specified by two to four sub-questions. Required resources Mainy desk-based too, imited resources required. Current appications In preparation for the January 2002 debate on potentia confict issues, confict assessments were carried out by Commission desk officers and EC deegations for more than 120 countries, on the basis of the indicators. The objectives were: to increase awareness, within the EU decision making forums, of the probems of those countries/regions with the highest assessed risk of an outbreak, continuation or re-emergence of confict to heighten efforts to ensure that EU poicies (and in particuar EC ones) contribute to confict prevention/resoution. Countries receiving highest scores were drawn to the attention of the Genera Affairs Counci through a confidentia watch ist. The watch ist is subject to constant revision, on the basis of the above indicators. When drafting the poitica anaysis section of the Commission s country and regiona strategy papers, risk factors contained in the checkist are systematicay reviewed by the Commission s geographica services and, on the basis of the confict anaysis, attention is drawn to confict prevention focused activities that externa aid shoud target. Lessons earnt Athough the checkist is reativey new, generay EC desk officers and deegations are positive about the usefuness of the too. It is regarded as an important step forward for mainstreaming confict prevention and addressing structura causes of confict through EU poicies and programmes. In order to streamine the procedure further, a web-based patform is under deveopment. In order to further improve the efficiency of the checkist, the foowing actions are being considered: a review of the appropriateness of the indicators and the custers, with a view to identifying whether more indicators shoud be added or whether indicators shoud be further adapted to specific geographica regions. more speciaised training for desk officers and deegations on the root causes checkist using the checkist requires aocating a rating to each indicator

43 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 23 (from 0-4) and thus invoves a certain measure of persona perception. The training woud hep ensure that the resuts of the anaysis can be assessed consistenty and comparativey. another possibe use for the checkist woud be to appy it, in the Commission s interactions with partners (eg EU member states, internationa organisations, NGOs, etc). Commentary on the too The checkist exercise needs to be paced in the context of the Communication from the Commission on confict prevention and the EU programme for the prevention of vioent conficts, which highighted the need to move the timescae for EU action forward, becoming progressivey more pro-active and ess reactive. It aso promotes the notion that an eary identification of risk factors increases the chances of timey and effective action to address the underying causes of confict. The checkist is ony one of the toos that the Commission has at its disposa for monitoring and eary warning. Others incude reguar reporting from Deegations and desk officers on issues reated to the economic and poitica deveopments in concerned countries, open source information via the Commission's crisis room, and ECHO s disaster monitoring system, known as ICONS (Impeding Crisis Onine New System). Avaiabe reports The checkist for root causes of confict is avaiabe on the EC website ( cpcm/cp/ist.htm). Contact detais Confict Prevention Unit European Commission Externa Reations Directorate Genera Javier Niño Pérez Te: E-mai: [email protected] Guy Banim Te: E-mai: [email protected] 6. Working with confict: skis and strategies for action Version / Date of issue 2000 Name of organisation Responding to Confict (RTC) Authors Simon Fisher, Dekha Ibrahim Abdi, Jawed Ludin, Richard Smith, Steve Wiiams, Sue Wiiams Primary purpose Confict anaysis and intervention within the framework of confict transformation (the handbook contains toos for anaysis, panning, impementation and impact monitoring) Intended users Loca and internationa NGOs, fied and headquarters staff, mainy working on peacebuiding. Individua toos can be appied in a wide range of contexts, incuding deveopment co-operation and humanitarian assistance. It is aso used by nationa governments and donors. Leves of appication Mainy project eve and oca conficts, athough it is aso appicabe to country-eve anaysis. Conceptua assumptions Confict is compex, dynamic and a part of ife. When it is vioent it becomes destructive. Confict transformation is a hoistic and mutifaceted process of engaging with confict. It aims to reduce vioence and bring about sustainabe justice and peace. It requires work in a spheres, at a eves and with a stakehoders. The handbook contains an easiy accessibe introductory section on understanding confict, which deas with different ways of making sense of confict and vioence, concepts of confict transformation and the nature of peace processes. A further section is devoted to critica issues in confict anaysis, incuding power, cuture, identity, gender and rights. Generay, the handbook takes a vaue-based approach to confict, which is firmy grounded on the principes of active non-vioence. Main steps and suggested process The handbook contains a series of toos for anaysing confict. The aim is to reach a muti-dimensiona anaysis of the confict and find entry points for action. An important aspect is the incusion of stakehoders in the anaytica and decision-making process. 1. Stages of confict Identify stages of confict Predict future patterns Seect particuar episode for further anaysis This too identifies the different stages, eves and patterns of intensity of a confict over a specific period of time. It assists in identifying indicators for different stages of

44 24 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 confict and vioence. Stages of confict can be used to represent different perceptions of a confict. 2. Timeines Carify oca confict history Hep peope know and accept each other s understandings of history This step provides graphic potting of key confict-reated and other events against a particuar timescae. It aso highights the different perceptions of the parties in the confict. 3. Confict mapping Identify actors, issues and reationships Identify potentia aies and entry points for action This too heps visuaising reationships between confict actors (it can aso incude geographica mapping, mapping of issues or power aignments, mapping of needs and fears). The power reationships become evident through the reative size of actors in the diagram, ines between actors symboise type of reationship (eg aiance, confict over particuar issue) 4. ABC (Attitudes, Behaviour and Context) Triange Gain insight into motivations of confict parties and the structures or systems in pace that contribute to the confict Identify the key needs of each party Find entry points. For each confict party, drawing an ABC triange heps to understand the position from which each party is approaching confict, the context within which confict is taking pace, and identifies key needs. 5. Onion Move beyond pubic positions of each party Prepare for faciitation, mediation or probem soving interventions. For each confict party, an onion of three concentric circes is drawn. These represent, from inside to outside, needs ( what we must have ), interests ( what we reay want ), and positions ( what we say we want ). It heps identify common ground between groups as basis for further discussions. 6. Confict tree Reates causes and effects to each other, and heps to focus interventions Faciitates decision making on work priorities A tree symboises the core probem of the confict (trunk), its underying causes (roots) and effects (branches). It heps reaching agreement in groups on the core probem to be addressed, and shows the inks between the underying causes and the effects. 7. Force-fied anaysis (adapted) Carify negative and positive forces that are working for or against the continuation of vioent confict Deveop strategies for reducing/eiminating the negative and buiding on positive forces It heps provide a visua anaysis of positive and negative factors infuencing a desired change or pan of action. Positive and negative forces are isted in parae coumns with arrows symboising their reative strength. 8. Piars Find ways to weaken or remove factors supporting a negative situation. Upside-down triange symboises a (negative) situation, which is uphed by piars representing the forces maintaining this situation. This step increases understanding of structures sustaining an undesirabe situation. 9. Pyramid Find right approaches for working at different eves Position own work Identify potentia aies. Two to three eveed pyramids show stakehoders at different eves of the confict (eg top, midde, grass roots). It heps identify key actors/eadership and inks between eves. Most toos are best used during a workshop or community meeting, or within a team. Users can seect and combine toos according to their specific needs. Most toos are more effective when used with the active invovement of communities and are designed to deepen their understanding of confict issues. They need to be used with sensitivity to oca circumstances. Guiding questions / indicators Refer to individua toos. Required resources None, except a famiiarity with the toos. Current appications The RTC approach is used extensivey in countries in situations of crisis or in post-settement peace-buiding, both by externa interveners and by those taking action for change in their own situations. They have been, and are being, appied in a wide variety of contexts, from oca government offices in the UK, through internationa NGOs such as Word Vision and Oxfam (West India), to pastoraist communities in North-eastern Kenya. Lessons earnt Using and deveoping the toos assist peope to express their perspectives and understanding of the situation, as a perspectives are seen as vauabe. The debate is focused on the issue rather than the individuas. This gives a more compete picture to a invoved and carifies the understanding of a. It is important to use some or, indeed, a of the toos together, as a package, in order to gain fu and nuanced understanding of compex confict situations. Adaptation of the toos to make them more famiiar to participants is hepfu for exampe in parts of Kenya the Confict Stages diagram is referred to as the came s hump. Commentary on the too

45 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 25 Anaysis is not a one-off activity. Because confict, vioence and peace are dynamic, anaysis needs to be reguary updated. Avaiabe reports Some reports can be obtained on appication from Responding to Confict and from various peace networks gobay, such as ACTION for Confict Transformation, Coaition for Peace in Africa (COPA South and East Africa), Cooperation for Peace and Unity (CPAU Afghanistan) and West African Network for Peacebuiding (WANEP). Contact detais Responding to Confict Te Fax Emai: [email protected] Website: 7. Making Sense of Turbuent Contexts (MSTC): Anaysis toos for humanitarian actors Version / Date of issue January 2003 Name of organisation Word Vision Authors Stephen Jackson with Siobhan Cathrop Primary purpose Confict anaysis and panning Intended users Initiay designed for emergency response staff of internationa NGOs. It is aso usefu for staff invoved in panning and design of deveopment or advocacy programmes in countries experiencing instabiity. Leves of appication Country and regiona eves. Conceptua assumptions 1. Turbuent Contexts Refers to what the humanitarian sector is caing Situations of Chronic Poitica Instabiity (SCPI).This term expands the notion of compex humanitarian emergency to refect the ong-term, cycica and poitica nature of many of these contexts. It covers phenomena such as cycica confict, vioence against civiians, poitica unrest, extreme poarisation of weath, natura disasters over a number of years, popuation dispacement, and the need for humanitarian assistance. The emphasis is on the chronic and poitica nature of these contexts. 2. MSTC Toos These toos are based on recent research on the economy of war, but do not oppose greed and grievance. Rather, the methodoogy aims at capturing both the economic agendas in war and the socia dynamics (eg around cass, gender, identity, history, beief systems) eading to vioence. The MSTC anaysis uses speciay designed, practica toos to pee away the poitica, economic and socio-historic ayers of compex conficts. MSTC was designed to dovetai with the Do No Harm approach. It provides for detaied contextua information at the meso- and macro-eve, on which Do No Harm can then buid. Main steps and suggested process MSTC anaysis provides five toos to answer the foowing key questions: 1. What phases has the context moved through? (Rapid Historica Phase Anaysis) 2. What are the symptoms of instabiity? (Symptoms of

46 26 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Instabiity Anaysis) 3. What kinds of actors are at pay in the growing instabiity? (Actor Characteristics Anaysis) 4. What strugges over resources and power have payed a roe in the growing instabiity? (Poitica Economy of Instabiity Anaysis) 5. What resentment and stereotypes have payed a roe in the growing instabiity? (Inter-group Reationship Anaysis) There are two further toos, one to synthesise the anaysis (SCPI Mapping) and the other to outine possibe future scenarios (Scenario and Sensitivity Anaysis). Other toos are aso avaiabe in the annex, incuding the iceberg method inspired by the UN Eary Warning and Preventive Measures methodoogy (see Survey of confict causes as expained in too 10) that can be used to compement the Symptoms of Instabiity Anaysis, in order to identify the structura causes that ie behind the immediate causes identified within the MSTC process. are not avaiabe owing to sensitivities. Contact detais Word Vision Internationa Siobhan Cathrop Poicy & Advocacy Capacity Buiding Co-ordinator Emai: [email protected] Guiding questions / indicators Refer to individua toos Required resources Variabe, as modues can be combined in different ways. Current appications It has recenty been appied by Word Vision Sudan and wi be undertaken in Kosovo and Uganda (panned for Juy / August 2003). There are aso pans to use these toos, combined with other tried and tested toos, for an inter-agency anaysis of Iraq. Key Word Vision humanitarian, poicy and programme staff have been exposed to it. Lessons earnt Lessons earnt are yet to be gathered, as it is sti eary in the test stage. It is nonetheess panned that key practitioners invoved in the test runs wi be brought together by the end of 2004 for the review and revision of the toos. However, key essons earnt so far incude: the need for fexibiity in the choice of toos used the need for sensitivity and confidentiaity in the dissemination of findings the usefuness of the toos for strategic panning in genera the need to consider simpifying the toos. Commentary on the too The too is sti in its infancy, and yet to be fuy tested, but eary indications are that it is very usefu for confict-sensitive programming (emergency or onger-term deveopment) in areas where macro-eve anaysis has been negected. It is aso usefu for the anaysis of custers of countries, i.e regions, where causa factors are cross-border. Avaiabe reports Reports of MSTC anaysis findings for the above countries

47 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Do No Harm / Loca capacities for peace project Version / Date of issue 2001 Name of organisation Coaborative for Deveopment Action (CDA) Author Mary Anderson Primary purpose Micro confict anaysis, project panning and programme quaity, and impact assessment of programme on confict Intended users Fied staff of internationa or oca NGOs, aso widespread among donor agencies (headquarters and fied offices). It is primariy targeted at humanitarian organisations, but is aso appicabe to deveopment co-operation and peacebuiding. Leves of appication Project eve Conceptua assumptions Aid is not neutra in the midst of confict. Aid and how it is administered can cause harm or can strengthen peace capacities in the midst of conficted communities. A aid programmes invove the transfer of resources (food, sheter, water, heath care, training, etc.) into a resource-scarce environment. Where peope are in confict, these resources represent power and weath and they become an eement of the confict. Some peope attempt to contro and use aid resources to support their side of the confict and to weaken the other side. If they are successfu or if aid staff fai to recognise the impact of their programming decisions, aid can cause harm. However, the transfer of resources and the manner in which staff conduct the programmes can strengthen oca capacities for peace, buid on connectors that bring communities together, and reduce the divisions and sources of tensions that can ead to destructive confict. To do no harm and to support oca capacities for peace requires: carefu anaysis of the context of confict and the aid programme, examining how aid interacts with the confict, and a wiingness to create options and redesign programmes to improve its quaity carefu refection on staff conduct and organisationa poicies so that the impicit ethica messages that are sent communicate congruent messages that strengthen oca capacities for peace. Main steps and suggested process Anayse dividers and sources of tensions between groups: Systems & Institutions; Attitudes & Actions; [Different] Vaues & Interests; [Different] Experiences; Symbos & Occasions. Anayse connectors across subgroups and Loca Capacities for Peace: Systems & Institutions; Attitudes & Actions; [Shared] Vaues & Interests; [Shared] Experiences; Symbos & Occasions. Anayse the aid programme: mission, mandate, headquarters; describe the oca programme in terms of why; where; what; when; with whom; by whom and how. Anayse the aid programme s impact on dividers/tensions and connectors / oca capacities for peace: is the programme design, its activities, or its personne increasing or decreasing dividers / tensions? Is it supporting or undercutting connectors / oca capacities for peace? Consider options for programming redesign and re-check the impact on dividers / tensions and connectors / oca capacities for peace: how can the programme detais be redesigned so it wi Do No Harm and strengthen oca capacities for peace? Ensure the redesign options avoid negative impacts on the dividers or connectors. The Do No Harm framework is generay used by a group of practitioners famiiar with the context and project. In this sense, most data is drawn from the participants. However, there are times when information gaps are identified and data is coected from other sources to improve the quaity of the anaysis. It does not incude expicit confict and peace indicators. However, there are many impicit indicators that can be made expicit, through a community-based process of indicator deveopment. Such indicators coud incude a just distribution of resources, creating or strengthening networks of reationships across divisions, strengthening good governance, the use of participatory processes for decision making, supporting traditiona or indigenous mechanisms for confict resoution and reconciiation, incusion of diversity of ethnic or reigious groups, gender, or youth in programme activities and eadership structures. Guiding questions / indicators Required resources Limited, if conducted in workshop format. Current appications The Do No Harm methodoogy is widey used among

48 28 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 internationa and increasingy oca humanitarian and deveopment organisations. In Germany, for exampe, a arge group of NGOs has committed themseves to mainstreaming Do No Harm within their operations. Whie engaged in the eary deveopment of the too in coaboration with CDA, Word Vision has aso moved toward a process of mainstreaming the use of the Do No Harm framework since To this end, workshops, training of trainers, programme assessments and case studies of the use of the above framework have been undertaken wordwide. Options for Aid in Confict: Lessons from Fied Experience, Ed. by Mary B. Anderson, December Contact detais Coaborative for Deveopment Action Te: Emai: [email protected] Lessons earnt The Do No Harm framework is an approach that is highy compatibe with community-based participatory processes and may in fact hep strengthen oca capacities for peace, in the process of using it. The underying concepts of the Do No Harm framework are reativey easy to grasp (this can be done in a one- to two-day workshop). It is nonetheess a onger process to integrate it into staff perspective in such a way that it becomes a confict anaysis ens for better assessing humanitarian and deveopment work. It is descriptive in nature and therefore chaenges the users to do their own anaysis and appy probem-soving skis to the situation. When used we, it can improve the quaity of programming, owers the risks to staff and community, and ays a soid foundation on which peace-buiding can take pace. After extensive appication of the Do No Harm approach in a variety of contexts, a number of internationa NGOs, incuding Word Vision, have found that it is very usefu in both emergency and deveopment settings. It is primariy focused on the micro situation, so that, if used without consideration of the macro context, it may create a fase sense of security for staff. It is ess suitabe for an in-depth anaysis of macro-eve confict. Some organisations, such as Word Vision, have thus tried to address the above, by combining Do No Harm with other macro confict anaysis toos. Commentary on the too The Do No Harm framework has proved a very vauabe too for micro confict anaysis, in both reief and deveopment contexts. It is aso regarded as a fexibe too that can be further adapted to the various needs of the organisations appying the Do No Harm framework. For instance, Word Vision found that the use of case study writing and the use of case studies in training hep compement the LCPP framework. Avaiabe reports More information on the Do No Harm approach can be found on CDA s website ( Training materias are avaiabe in Engish, French and Spanish. The foowing pubications are particuary usefu: Do No Harm: How Aid can Support Peace or War, Mary B. Anderson, Bouder: Lynne Rienner Pubishers, February 1999.

49 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Confict and Poicy Assessment Framework Version / Date of issue summer 2000 Name of organisation Cingendae Institute Author(s) Suzanne Verstegen, Luc van de Goor (together with Fund for Peace) Primary purpose Confict anaysis and eary warning, with a view to deveoping confict prevention poicy strategy. Intended users Donor desk officers, incuding embassy staff, it mainy addresses foreign poicy and deveopment issues. Leves of appication Country and sectora eves. Conceptua assumptions The Confict and Poicy Assessment Framework (CPAF) heps to anayse the confict or stabiity sensitivity of countries by assessing the roe of a number of specified indicators. The assessment wi provide information on indicators that (potentiay) have a destabiising effect or can put a country at risk. The use of trend ines per indicator wi aso emphasise whether certain indicators are areas of persistent difficuty, suggesting that more attention coud/shoud have been devoted to these in the past. The assessment wi aso bring into focus the voatiity of the situation and identify indicators and areas on which to focus from the perspective of imiting risks to the sustainabiity of peace or stabiity. Within the framework of the CPAF, Cingendae uses the Anaytica Mode of Interna Confict and State Coapse deveoped by the Fund for Peace (1998), for the confict assessment part. This mode uses indicators of interna confict and state faiure. In this approach, interna confict is caused by state faiure, not the other way round. Main steps and suggested process Steps for confict anaysis 1. Trend anaysis (Fund for Peace indicators) 2. Anaysis of probem areas (ie priority areas for poicy response) 3. Confict anaysis paper (to estabish response-oriented warnings). Steps for poicy anaysis 1. Organisation s capacity assessment (eg mandate, operationa framework) 2. Toobox assessment (poicy instruments) 3. Poicy assessment and essons earned (of ongoing poicies, incuding ex-ante peace and confict impact assessment) 4. Assessment of the overa security context (partnerships, coaitions) 5. Strategic poicy paper. In order to improve the aspect of shared anaysis and co-operation with oca partners, the CPAF works with a workshop format in which a participants (donor desk officers, embassy staff and oca partners, both governmenta and non-governmenta) are guided through the first three steps of the CPAF. The participants assess the situation of a given country as regards the sustainabiity of peace and stabiity by appying the Fund for Peace methodoogy, deveop the atest trend ine, and assess the range of poicy options for addressing the areas that are fagged on the basis of the anaysis. The workshop provides the participants with an opportunity to engage in a diaogue on the assessment of the situation, as we as the poicy options. During the workshop the participants are divided into severa groups to assess the tweve indicator trend ines. The findings are discussed in a penary session with a moderator. Based on this penary session, the overa trend and probem indicators are estabished. In the next step, participants are divided into working groups with particuar expertise, in order to focus discussions and to come up with adequate suggestions for addressing the probems that were identified. The workshop resuts in a warning dispatch that highights the potentiay destabiising trends, as we as a ist of options to address or reverse these trends. The impications for specific donors are discussed in a separate meeting. Guiding questions / indicators On the basis of the Fund for Peace s anaytica mode, top indicators on the nationa state eve form a centra part of the confict trend anaysis. These top indicators are: mounting demographic pressure massive movement of refugees or internay dispaced persons egacy of vengeance-seeking group grievance or group paranoia chronic and sustained human fight uneven economic deveopment aong group ines sharp and/or severe economic decine criminaisation and/or deegitimisation of the state progressive deterioration of pubic services suspension or arbitrary appication of the rue of aw and widespread vioation of human rights security apparatus operates as a state within the state rise of factionaised eites intervention of other states or externa poitica and/or economic actors. Each top indicator is further specified by three to six measures, which are inked to potentia aspects of confict and probem areas. Required resources The main resources required reate to the organisation of the

50 30 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 workshop and incude preparatory research and workshop materia deveopment, as we as the costs of trave, accommodation, etc for externa participants/consutants. Current appications In 2002 and 2003, the Cingendae Institute has run a number of test cases, in Rwanda and Mozambique, to further refine the too. Its findings are used for poicy purposes, and it is intended to mainstream the competed too within the Dutch Ministry of Foreign Affairs. Another appication is panned for Kenya at the end of In the case of Rwanda, the Netherands Ministry of Foreign Affairs aready used the CPAF to feed into its work pan for the country. In the panned Kenyan appication, the CPAF wi be used specificay as a basis for Dutch poicy and practice. Lessons earnt Carrying out the CPAF in a workshop format forced participants to be cear about deveopments and trends, and their potentia impications and consequences if not addressed. Athough participants were generay aware of this, the use of ratings was an added vaue, as it gave some sense of urgency that aowed for the visuaisation of positive or negative trends over time. The ratings were expained by using exampes, thus making them more concrete. In terms of poicy, it became cear that some of the sectora choices that have been made do not adequatey reate to some of the identified trends from a confict prevention perspective, this ceary needed improvement. On the other hand, the projects and activities that were carried out and panned in the sectors of choice coud be focused on confict prevention. It was aso cear that the overa poitica position of the Netherands Embassy coud be more critica in its poitica diaogue with the host governments. The CPAF report can be downoaded from the Cingendae website ( The reports of the workshops are not avaiabe for wider distribution. Contact detais Confict Research Unit Netherands Institute of Internationa Reations Cingendae Teephone: +31 (0) Fax: + 31 (0) E-mai: [email protected] Website: Luc van de Goor +31 (0) [email protected] Suzanne Verstegen +31 (0) [email protected] Fund for Peace (for their confict anaysis) Pauine H. Baker E-mai: [email protected] Website: The findings were aso shared with other agencies (USAID and DFID) and it was found that they coincided. This provided opportunities for joint approaches. In Rwanda, foowing this initia appication, further foow-up is being panned with a view to basing future poicies and programmes on the same CPAF anaysis. Commentary on the too The too is currenty being used in a fied test phase by the Netherands Ministry of Foreign Affairs. It wi be adapted to make it more easiy appicabe in the future. This mainy impies speeding up the anaysis and the trend ine deveopment. It is considered to be fexibe and adaptabe and practica in a poicy setting. The too is not addressing the specifics of programmes or activities, but mainy focuses on strategic approaches for donors (overa programme deveopment and poicy approaches) from the perspective of confict prevention. Its continued appication for the Netherands Ministry of Foreign Affairs is under consideration and wi be decided upon in Avaiabe reports

51 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Eary Warning and Preventive Measures Version / Date of issue 1999 Name of organisation UN System Staff Coege Author(s) United Nations System Staff Coege (UNSSC) Primary purpose Confict anaysis, eary warning and response design Intended users It is primariy targeted at United Nations staff (at both HQ and fied eve), to identify eements for potentia preventive action strategies in their respective countries of assignment. It may aso be used by nationa actors and other institutions (donors, civi society, etc) who can adopt the methodoogy, in order to design and deveop nationa preventive action strategies to address home-grown issues with oca soutions. Leves of appication Country eve. Conceptua assumptions Human security and human rights provide the conceptua framework for the UN confict anaysis methodoogy. In particuar, human security refers to the safety for individuas and groups from both: vioent threats, eg vioent crime, gross vioations of human rights, terrorism, etc non-vioent threats, eg environmenta degradation, iicit drugs, economic crises, infectious diseases, natura disasters. Main steps and suggested process 1. Situation profie Estabish a shared understanding and broad picture of the country / region under consideration, incuding geography, history, current events, economy, poitica system, socia structure, externa issues, etc. 2. Actors anaysis matrix Identify and assess key actors who can faciitate or undermine peace and stabiity in a society, in particuar from the perspective of: their main characteristics their interests and underying needs the resources that they currenty have and those that they sti need or hope to obtain. 3. Survey of confict causes Identify possibe causes of vioent confict, foowing two main dimensions: categorise possibe causes of vioent confict, in terms of their potentia threat to various aspects of human security. These incude: governance and poitica stabiity, socia and communa stabiity, economic and resource stabiity, persona security, miitary mobiisation and arms suppy, externa factors further distinguish between proximate and structura causes within each human security category. Consider human rights as a cross-cutting issue and ensure that it is mainstreamed in a human security categories. 4. Composite anaysis Expore the interaction between the structura causes of confict in order to assess the resuting confict dynamics and to identify the core issues which preventive action wi need to address. 5. Preventive measures matrix Identify eements of a preventive action strategy in order to address the core issues highighted through the confict anaysis. This wi be based on the formuation of objectives, the generation of options for preventive action and the identification of recommended measures, through a triage process. 6. Scenario buiding Buid a two-track scenario refecting ikey deveopments resuting from the impementation or ack thereof of the recommended preventive measures, in order to deveop a convincing argument on the need to take preventive action. The above steps are usuay introduced through a five-day training workshop that combines penary and country working groups. Guiding questions / indicators Context specific indicators are deveoped to measure the impact of the potentia preventive action, using the SMART principe (ie Specific; Measurabe; Achievabe; Reevant; Time-bound). No specific ist of avaiabe indicators is used. Required resources Training materias (card and chart technique); Human resources to faciitate the process (eg faciitators); Limited financia resources uness externa faciitation is required. Current appications From 1999 to 2003, 34 training workshops have been conducted at the country and regiona eve and targeted UN staff, nationa actors (eg Niger) and civi society (Washington; Bibao). Lessons earnt On the basis of the externa evauation conducted in 2002/2003, key findings and recommendations can be summed up as foows: Overa, the Eary Warning and Preventive Measures (EWPM) project has achieved a great dea in ess than five years. The evauators found a heightened awareness concerning areas of eary warning and confict prevention

52 32 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 and a determination to make eary warning a cross-cutting issue throughout the UN. The course content needs to be continuousy reviewed, in order to ensure it is in ine with new deveopments emerging in the confict prevention fied. The poo of trainers that the United Nations System Staff Coege currenty uses needs to be further expanded. Human rights issues need to be integrated better. Increased advocacy is needed to reach a arger audience beyond the UN system. Commentary on the too The EWPM methodoogy remains time consuming, if a steps are foowed in an in-depth fashion. It does not require extensive financia resources, as ong as no externa faciitator is needed. It is a fexibe methodoogy that can be adapted to a arge variety of audiences beyond the UN system (eg civi society; donor agencies). Avaiabe reports A reports of the 34 trainings conducted ( ), as we as the recenty competed externa evauation, are avaiabe on the UN System Staff Coege website ( Contact person Svenja Korth Project Officer (EWPM) United Nations System Staff Coege Emai: [email protected] Website: Confict assessment framework Version / Date of issue 7 January 2002 Name of organisation USAID, Office of Confict Management and Mitigation Author Sharon Morris Primary purpose To integrate confict sensitivity into the Mission strategy. It is mainy deveopment focused. Intended users USAID desk officers, impementing partners, mission staff, US embassy staff and other US government participants. Leves of appication Country / nationa, regiona and sectora eves (eg democracy and governance, heath, natura resource management) Conceptua assumptions The framework aims to pu together the best research avaiabe on the causes of confict and focuses on the way that the different variabes interact. It does not aim to make predictions. It aso does not expicity weight variabes, athough it identifies a few categories of key causes of confict, namey: ethnic and reigious divisions economic causes of confict environment and confict popuation, migration and urbanisation institutiona causes of confict. Main steps and suggested process Desk study on the country context and the main causes of confict. Discussions with other US agencies (eg State Department, Department of Justice, etc.) on the panned engagement for that country and the panned confict assessment. Assessment team goes to the country for a three to four week visit. This visit generay incudes a workshop with the mission staff and partner organisations (ie partner organisations working on confict, as we as from different sectors). The country visit eads to a confict mapping, which is being compared to existing programmes to assess whether they addressing the confict causes. The outcome of the assessment is a report with recommendations on how to address the confict causes through deveopment programmes. The recommendations focus specificay on examining the in-country organisationa capacity to address the causes

53 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 33 of confict that have been identified. The mission then takes forward the recommendations (with support from the origina assessment team) within their programming strategy. After the desk study has been conducted, specific sectora themes generay emerge as key confict causes (eg competition for access to natura resources) and a muti-sectora team wi be pued together accordingy. The team wi normay consist of no more than five peope, incuding sectora speciaists, who can be either from the head office or in-country consutants (the number of peope from head office is usuay restricted to one or two peope). The team spends about three to four weeks in-country, working with the mission staff. Guiding questions / indicators The methodoogy suggests some broad guiding questions, in order to stimuate thinking on the interaction of different issues and tensions. They centre on the need to first estabish the variety of causes that interact and overap, and then to move into the more detaied anaysis of what these causes are and the dynamics between them. This anaysis focuses on four categories of the causes of interna confict and specifies a number of key issues under each category: 1. root causes (greed and grievance): incuding ethnic and reigious divisions; economic causes of confict; environment and confict; popuation, migration and urbanisation; and the interaction between different root causes and confict 2. causes that faciitate the mobiisation and expansion of vioence (access to confict resources): organisations and coective action; financia and human resources; confict resources and widespread vioence 3. causes at the eve of institutiona capacity and response: democracy and autocracy; poitica transitions and partia democracies; weak states, shadow states and state faiure; state capacity, poitica eadership and confict 4. regiona and internationa causes/forces: gobaisation, war economies and transnationa networks; bad neighbourhoods. In addition to the categories and principes outined above, the idea of windows of vunerabiity is aso introduced, which indicates the moments when particuar events (eg eections, riots, assassinations etc) can trigger the outbreak of fu-scae vioence. Required resources The resources required reate to the time spent on the desk study before the in-country visit, the in-country visit itsef, and the foow-up support after the visit. In tota, the entire process takes around two months. Current appications This methodoogy has been appied in about 18 countries to date in Africa, the Midde East, the Caucasus, Latin America, Asia / Near East and the NIS. USAID aso participated in the muti-donor assessment that was conducted in Nigeria (together with DFID, the Word Bank and UNDP). Workshops were found to be a usefu format for the in-country assessment work. Using oca consutants has been very vauabe, but one needs to carefuy seect them, bearing in mind their own poitica opinions and affiiations. In some cases, it has been impossibe to use oca consutants due to such sensitivities or the fact that they may be put at risk through their invovement in the assessment. The importance of having a team composed of speciaists from different sectors has been proven, so as to broaden it beyond peope usuay working ony on confict. Simiary, integrated, muti-sectora programming is important in order to effectivey address the confuence of the different confict causes and dynamics. The utimate objective of the assessment is to enabe the mission to adjust their programming in order to make a difference to the confict dynamics in-country. The cose invovement and buy-in from the mission staff is therefore critica to ensure that impementation takes pace. In-country, good co-operation with the US Embassies has proven very usefu. After producing the assessment report with its recommendations, it is crucia to foow up and ensure that the findings are incorporated into the programme strategies in country. It has proved fairy easy to convince mission staff of the ink between confict and their programming, but the chaenge has been how to then design and impement more confict-sensitive programmes. With this in mind, USAID has started deveoping a menu of options / exampes for different types of programmes on different sectors, such as for instance how to design a programme for confict-sensitive water management or youth engagement. Commentary on the too This methodoogy has been very successfu at estabishing the anaysis of what confict causes are and how they ink to sector programming. The chaenge is now to ensure that this reaisation is impemented through appropriate programme design and impementation. Avaiabe reports The country reports are not avaiabe pubicy and the confict assessment framework methodoogy is not avaiabe yet, athough it is envisaged that it wi eventuay be avaiabe on the USAID website. Contact detais Adam Reisman Office of Confict Management and Mitigation USAID Te: Emai: [email protected] Website: Lessons earnt

54 34 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Confict anaysis for project panning and impementation Version / Date of issue 2002 Name of organisation GTZ Author(s) Manuea Leonhardt Primary purpose Confict anaysis and panning Intended users Desk officers, regiona representatives, project managers of donors and internationa NGOs working in deveopment. Leves of appication Country and project eves. Conceptua assumptions The confict anaysis too is based on a synthesis of existing toos. It paces particuar emphasis on participatory approaches to confict anaysis. Main steps and suggested process A. Confict anaysis 1. Confict profie What kind of confict do we dea with? What are its consequences? When did it start? How did it deveop over the ast years? What phase are we in? Where does the confict take pace? Territoria issues? 2. Stakehoder anaysis Who are the parties to the confict? What are their positions, interests and capacities? Aiances? What position do the (intended) beneficiaries have towards the confict? How does the confict affect them? What surviva strategies have they deveoped? What capacities do the confict parties have to continue the confict? Are there capacities for peace? What are the concusions of this anaysis for the seection of partners and beneficiaries? 3. Causes of confict Why did the confict start? What are its root causes (security, poitica, economic, socia, externa)? What factors contribute to proonging the confict? What are the main obstaces working against a peacefu soution? 4. Trends and opportunities How does the confict presenty deveop? What factors encourage vioence, what factors contribute to peace? Are there peace initiatives? At what eve? What have they achieved? How can inkages between micro-eve activities and macro-eve processes be achieved? B. Project panning 1. Capacity anaysis (own organisation and partners) Why do we want to work on confict? What is our mandate? Do partners and beneficiaries wish such an engagement? Do we have the necessary skis, knowedge, resources, and networks to work on confict? How can we buid them? How woud this affect our other activities in the area? 2. Goa anaysis What are the key entry points for working on the confict? What are the beneficiaries/partners priorities? What are our priorities? What is our comparative advantage? 3. Strategy deveopment Do we have a coherent strategy to address the priority issues identified above? Do we have the minimum poitica, ega, and security requirements to do this work? Do we have sufficient poitica support (oca, nationa)? Is the timing appropriate? Is there a window of opportunity? Is the initiative sustainabe? 4. Risk assessment Is there a possibiity that the initiative, directy or indirecty, intentionay or unintentionay: contributes to socia and economic poarisation? reinforces undemocratic poitica structures? weakens civi society and undermines poitica participation? compromises oca mediators or confict management structures? provides opportunities for hate propaganda or censorship? 5. Peace and confict indicators To cover the security, poitica, economic, socia, and externa dimensions of confict. Guiding questions / indicators Each anaytica step contains a set of guiding questions, which hep the user to buid an understanding of the confict and prepare confict-sensitive action. The key guiding questions are: A. Confict anaysis 1. Confict profie 2. Stakehoder anaysis 3. Causes of confict 4. Trends and opportunities B. Project panning 1. Capacity anaysis

55 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Goa anaysis 3. Strategy deveopment 4. Risk assessment 5. Peace and confict indicators The manua offers fifteen anaytica toos to support the user in working on the guiding questions. The toos are drawn from the participatory rura assessment toobox, the Responding to Confict toos as we as from the work of individua confict speciaists. They incude: confict profie phases of confict timeine arena anaysis (spatia confict anaysis) confict mapping (actor anaysis) confict actors pyramid confict onion (positions, interests, needs anaysis) confict tree (simiar to probem tree) confict piars (factors uphoding the confict) trend anaysis confict scenario capacities and vunerabiities anaysis institutiona anaysis capacity anaysis Do No Harm anaysis. Required resources The required resources reate to the organisation of workshops and consutation meetings. Some desk-based work can aso be undertaken, but it is better to organise workshops and consutation meetings on site. Current appications GTZ conducted approximatey 20 country studies in the Caucasus, Centra Asia, South Asia, Africa, the Midde East and Latin America on the basis of this too. The too was aso requested by other German deveopment co-operation organisations and used in their work. Lessons earned This methodoogy focused on deveopment co-operation and adopts a participatory approach, which has proven to be a great strength in its appication. In order to use this methodoogy, faciitators require some time investment to become acquainted with the guideines, as they comprise amost 100 pages. methodoogy: GTZ, Tara Pozer 2002, Deveoping confict sensitivity: essons earned from seven country studies (Draft version) GTZ 2002, Nepa Country Study on Confict Transformation and Peace Buiding GTZ 2002, Peace Deveopment and Crisis Prevention in Coombia (avaiabe in German ony) GTZ 2002, Peace Deveopment and Crisis Prevention in Guatemaa (avaiabe in German ony) GTZ 2002, Confict Assessment Afghanistan (avaiabe in German ony) GTZ, FES, FriEnt 2002, Regiona Confict Assessment Afghanistan (avaiabe in German ony) GTZ 2002, Country Study Zimbabwe (avaiabe in German ony) GTZ 2002, Tajikistan: Confict and Reconstruction (avaiabe in German ony) GTZ, KfW, DED 2002, Anaysis of Peace and Confict Potentia in Yemen GTZ 2002, Peace Promotion and Confict Transformation in Sierra Leone and Guinea GTZ 2001, Confict Anaysis Caucasus (avaiabe in German ony) GTZ 2001, Chad: Confict Management and Peace Deveopment (avaiabe in German ony) GTZ 2001, Prospects of Crisis Prevention and Confict Management in Muanje District, Maawi (Southern Region) GTZ 2000, Crisis Prevention and Confict Transformation in Uganda (avaiabe in German ony) The reports in Engish avaiabe from the same website. Contact detais GTZ Sector Programme Crisis Prevention and Confict Management Meanie Seegräf Te.:0049-(0) Fax: 0049-(0) E-Mai: [email protected] Website: Commentary on the too Experiences of the appications are currenty being examined. The too wi be revised on the basis of these experiences up to the end of Pubication of the revised too is envisaged. Avaiabe reports The GTZ approach is avaiabe at The foowing reports were aso conducted on the basis of the above

56 36 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter FAST methodoogy Version / Date of issue 1999 Name of organisation Swisspeace Version / Date of issue 1999 Author Swisspeace, in coaboration with VRA (Virtua Research Associates) Primary purpose Risk assessments and eary warning Intended users Deveopment agencies, especiay at desk officer eve, Foreign Ministries and internationa organisations and NGOs. Leves of appication FAST provides country-focused rea-time monitoring of socia, economic and poitica deveopments, by way of continuous coection of events data, with an emphasis on poitica stabiity and instabiity. The methodoogy can aso be used for regions or sub-regions and be modified for other thematic focuses (eg migration, heath, human rights, etc.). Conceptua assumptions The objective of FAST is the recognition of impending or potentia crisis situations for the purpose of eary action and the prevention of vioent confict. FAST aims to enhance the abiity of poitica decision makers to identify critica deveopments in a timey manner, in order to formuate coherent poitica strategies to prevent or imit destructive effects of vioent conficts. FAST uses a comprehensive combination of quaitative and quantitative anaytica methods to produce risk assessments. The concept that forms the foundation of the FAST eary warning methodoogy is event data anaysis ie the ongoing information coection of daiy events and its quantitative anaysis. This is suppemented by the quaitative anaysis provided by internationa experts as we as the in-house anaysis carried out by the desk officers. Main steps and suggested process The confict anaysis is carried out aong two principes: The quaitative confict anaysis of a given country is conducted by appying the FAST anaytica framework, which aims to determine root, proximate, and intervening factors that can ead to the outbreak of a vioent confict or shape an existing confict. The quantitative anaysis foows the ogic of event data anaysis, meaning the ongoing coection of daiy events that are reevant for our focus of increasing/decreasing stabiity in a country. This data set is then anaysed statisticay and the resuts are dispayed in graphs. The information coection is carried out by oca information networks on the ground in order to have a set of data that is independent from Western newswires but aso to gain higher frequency and dispersion throughout the country. Guiding questions / indicators The anaytica framework ooks at root and proximate causes, as we as intervening factors, aong a timeine. Thereby, various indicators are identified, foowing a set of topics, incuding historic, poitica / institutiona, economic, societa / socio demographic, ecoogica, and internationa issues. These indicators, however, have to be appied in a fexibe manner and need to be adjusted according to the context. The indicators that are identified in the anaytica framework are used for the ongoing monitoring that is carried out. Besides, these issues correate with the indicators that are used in the quantitative system used by FAST. Required resources Due to the different components of FAST, the amount of human resources that is required is as foows: desk officers in Bern (each desk officer covers 2-3 countries) oca Information networks (3-5 fied monitors in each country as we as one country coordinator) an expert network to cover a the countries that are monitored by FAST statisticians and personne for quaity contro. At present there are 12 empoyees at the headquarters in Bern. Current appications FAST currenty covers 22 countries in Centra Asia, South Asia, the Bakans, the Midde East, the Horn of Africa, the Great Lakes region and Southern Africa. The coverage can be expanded according to cients needs. The Confict Eary Warning and Response Mechanism (CEWARN), initiated by IGAD, has adapted the FAST methodoogy focusing on cross-border, pastora conficts in the IGAD member states.

57 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 37 Lessons Learnt Rea-time monitoring of 186 event types confict / cooperation using event data anaysis System can be taiored to meet the end-user s needs Combination of quaitative and quantitative anaysis The anaytica framework too has proven an effective anaysis too that has aso been effectivey used at severa eary warning training workshops. Commentary on the too FAST is an eary warning too based on confict anaysis, and not an eary response mechanism, as the responses to be taken, on the basis of the forecasting provided by FAST, remain with the end users. The anaytica framework FAST s quaitative anaysis too can easiy be appied by other institutions. Besides, FAST has used this too in severa training workshops (hed in coaboration with the FEWER network) and has received positive response to its appication. The framework aows for a comprehensive, in-depth anaysis of a region / country and gives an exceent overview of the causes and the deveopment of a confictive environment over time, whie highighting positive intervening factors that can be usefu for peace-buiding initiatives. The compex FAST methodoogy can be modified and adjusted to different regions and focuses. The set-up and appication, however, is cost-intensive due to the different components needed for information coection and quaity contro, anaysis, and report writing. Nevertheess, the advantage of having oca networks for information coection and data that is independent from Western newswires ceary outweighs the higher overa costs. Avaiabe Reports The quartery risk assessments are pubished on the FAST website ( ) Contact detais Swisspeace Te.: +41 (0) Emai: [email protected] Website: Confict diagnostic handbook Version / Date of issue January 2003 Name of Organisation Canadian Internationa Deveopment Agency (CIDA)/Confict Prevention and Post-Confict Reconstruction (CPR) Network resource Author(s) FEWER/CIDA Primary purpose To faciitate the design of a Confict Diagnostic Framework that enabes panners to make strategic choices, and define entry points for response, by assessing confict and peace factors and conducting a stakehoder anaysis. Intended users Deveopment practitioners seeking to mainstream peace and confict anaysis into their ong-term deveopment programmes Leves of appication Country and regiona Conceptua assumptions The Confict Diagnostic Framework is based on the assumption that the identification of key indicators / stakehoders, the definition of scenarios / objectives, and the unpacking of strategic issues, together set the stage for a comprehensive (and evidence-based) peace-buiding strategy. The framework is not aimed at assessing the impact of a particuar project on the peace and confict dynamics in a society nor to fuy cover programme impementation issues. Main steps and suggested process For each step there is a tabe that needs to be competed, that refects the components of the anaysis in each step. Step 1: Confict Diagnostic Framework Step 2: Confict anaysis Step 3: Peace anaysis Step 4: Stakehoder anaysis Step 5: Scenarios and objectives Step 6: Strategic issues and choices Step 7: Peacebuiding recommendations Guiding questions / indicators 1. Step 1: Confict Diagnostic Framework This has a series of assumptions as part of its rationae: that confict indicators, peace indicators and stakehoders need to be identified for confict anaysis that trends in key confict/peace indicators and stakehoders need to be anaysed in order to be abe to

58 38 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 identify ikey scenarios that scenarios can be easiy transated into objectives, thus rooting peacebuiding objectives in reaity that, in order to define responses to confict, the foowing strategic issues need to be considered: the main confict indicators and the synergies among them; any gaps in peace-buiding; and strategic choices to be made by responding institutions. 2. Step 2 & 3: Confict anaysis and peace anaysis The foowing guiding questions are used for these two steps: have you considered indicators at a eves (oca, nationa, internationa)? have you considered indicators that reate to poitica, economic, socia, and security issues? have you considered the reative importance of historic, present and future indicators? are your indicators refective ony of the current phase of the confict (pre-confict, actua confict, post confict)? If so, pease consider whether other phases are reevant. are the indicators you seected important both in terms of facts and perceptions? do the indicators seected refect the concerns of different sectors of the popuation (women, edery, poor, chidren, rich etc)? 3. Step 4: Stakehoder anaysis The same guiding questions as above, pus the foowing: peace agendas: what visions of peace do the stakehoders have? What kind of peace do they want? What are the main eements of their peace agendas (and reform, nationa autonomy)? capacities: what capacities do the stakehoders have to support confict prevention and peacebuiding or to otherwise affect it? impications for peacebuiding: strategic concusions: what impications does this anaysis have for pursuing structura stabiity and peacebuiding? 4. Step 5: Scenarios and objectives The guiding questions are: what are trends in key confict indicators/synergies, peace indicators, and stakehoder dynamics? what is your judgement about best/midde/worst-case scenarios when considering the overa (confict, peace, stakehoder) picture? what optima and contingency objectives can you draw from the best and worst case (respectivey) scenarios? 5. Step 6: Strategic issues and choices The guiding questions are: in view of the fu anaysis, review identified confict synergies. Are they compete? assess the initiatives of other agencies and the capacity and comparative advantage of one s own agency in the different fieds (governance, economic, socio-cutura and security). in view of the previous questions, are key peacebuiding gaps adequatey defined? specificay ook at your capacity in different fieds (poitica, economic, socia, security) at a eves (oca, regiona and internationa). What can be mobiised to impact on confict synergies and peacebuiding gaps? 6. Step 7: Peacebuiding recommendations Once the recommendations have been identified, they need to be ooked at in terms of: the overa peacebuiding objectives coherence of the strategy who shoud be invoved Required resources The framework is designed to be most usefu when used in a workshop setting, and so resources woud be required to organise a workshop. Current appications Three workshops have been hed to appy this framework: in Sierra Leone, the Phiippines and the DRC. Lessons earnt 1. Athough systematised thinking is required for good confict anaysis and strategy deveopment, the constanty changing nature of confict is not easiy captured in tabes and boxes. The use of suppementary devices to enhance understanding (eg confict trees) is therefore essentia. 2. The diagnostic too is just that - it does not enabe good anaysis if its users ack a good understanding of the confict under study, or anaytica skis. 3. The too needs to be adapted for use by different types of actors, eg internationa deveopment agencies with programmed deveopment interventions, or oca NGOs engaging in various activities. 4. In order to ensure high quaity anaysis and a good strategy, the too shoud be appied in a workshop process that brings together key (constructive) stakehoders. Commentary on the too None Avaiabe reports The Compendium of Operationa Toos can aso be consuted at for operationa toos, best practices and essons earned. Contact detais Chief, Peacebuiding Unit [email protected]

59 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Better Programming Initiative Version / Date of issue 1998 Name of organisation Internationa Federation of Red Cross and Red Crescent Societies (IFRC) Author Based on the Do No Harm approach and the Loca Capacities for Peace Project (LCPP), adapted by the IFRC Primary purpose Impact assessment methodoogy and training initiative for anaysing the positive or negative impact of Red Cross / Red Crescent Nationa Societies aid programmes on communities recovering from vioence or confict. Intended users Red Cross / Red Crescent Nationa Societies and Deegation programming staff and vounteers. Leves of appication Loca, nationa and regiona eves. Conceptua assumptions Aid cannot reverse or compensate for the suffering and trauma that has occurred during confict. It cannot prevent confict from continuing or restarting, but it can be the first opportunity for war or vioence affected communities to experience an aternative to confict as the soe basis for their reationship with opposing groups. In the context of post-confict recovery, where resources are scarce and vioence is endemic, the seective aocation of aid can be a powerfu reason for disagreement and confict between those who receive assistance and those who do not. How Nationa Society and Federation programmes use and distribute resources wi have an impact (positive or negative; direct or indirect) on the context in which they are working. Even if their approach is totay neutra and impartia, the perception of those who are excuded from assistance may be competey different. Where aid organisations, particuary oca Red Cross and Red Crescent, can make a difference is in the panning and impementation of their own aid programmes. Humanitarian aid can and shoud promote ong-term recovery and reconciiation within and between communities at a very minimum it shoud never become a pretext for or cause of confict or tension between groups. Main steps and suggested process 1. Anayse the context Identify dividers within the categories of systems and institutions; attitudes and actions; vaues and interests; experiences; and symbos and occasions. Identify connectors within the categories of systems and institutions; attitudes and actions; vaues and interests; experiences; and symbos and occasions. 2. Describe the aid programme Describe in detais the panned / undertaken activities in terms of why, where, what, when, with whom, by whom and how. Anayse important institutiona issues such as: mandate/infuence in programme impementation; headquarters roe/infuence in programme impementation; fundraising/infuence in programme impementation. 3. Identify the impacts Wi the panned action reinforce a connector or weaken one? Wi it aggravate a tension or essen one? Use some specific questions as guidance, eg is our aid provoking theft, thus diverting resources towards the potentia confict? is our aid affecting the oca markets, thus distorting the oca economy? are our distributions exacerbating divisions within the popuation? is our aid substituting controing authorities responsibiities, thus aowing further resources to be invested in the potentia confict? are we, through our aid, egitimising oca supporters of the potentia confict or those who want reconciiation? 4. Find aternative options For each impact identified (positive or negative) as a side effect of the panned programme: brainstorm programme options that wi decrease negative effects and increase positive ones; check the options for their impact on the other connectors and dividers. 5. Repeat the anaysis As often as the context demands, and as often as the project cyce indicates. Guiding questions / indicators See the section above Required resources Required resources and time wi depend on the scope and context of the assessment. A training kit, with different modues, was created to introduce the Better Programming Initiative (BPI) in 90 minutes, one day or three days session. A BPI training of trainers workshop (9 days) was aso deveoped. Current appications Initiay undertaken in Coombia, Liberia, Nigeria, Bangadesh, Tajikistan and Kosovo. In order to contribute to the institutionaisation of the BPI methodoogy within Nationa Societies, the Internationa Federation is training Nationa Society staff and deegates as BPI trainers and integrating this too within other Federation panning and assessment toos. Nationa Societies and Federation deegations are using the too to assess the positive or negative impact of their projects, especiay in post-confict situations and in countries recovering from vioence.

60 40 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 2 Lessons earnt 1. Assessing needs We-panned aid programmes can ease suffering and reduce vunerabiity, providing a genuine foundation for recovery. However, experience in a six countries has shown that a thorough needs assessment is not enough uness it is accompanied by an in-depth anaysis and understanding of the context, at the eve of the intervention. 2. Designing programming Rehabiitation programming by humanitarian aid organisations, incuding the Internationa Federation, is increasingy used to support recovery and transition pans which form part of an overa poitica settement. Evidence from severa of the countries in which the BPI was pioted suggests that, when the Federation supports Nationa Societies engaged in rehabiitation programs inked to poitica settements, it needs to examine carefuy the conditions under which it wi be expected to work. Inevitaby, there are groups who may oppose the settement and the recovery pan that provides aid and resources to their former enemies. The popuation may aso be sensitive to the type of assistance provided and the proportion in which it is aocated. 3. Seecting and accessing beneficiaries Throughout the BPI testing phase, Nationa Societies and deegation staff found that the most common way in which they may contribute to fue tension is through the seection beneficiaries, without undertaking a thorough anaysis of the needs of a groups affected by the confict. Fax: E-mai: [email protected] Website: Commentary on the too Athough this methodoogy initiay focused on confict and post-confict situations, it has now been recognised that it may aso be usefu in other contexts. There are aso concrete and successfu exampes of the BPI methodoogy used to anayse the impact of our Nationa Societies institutiona capacities, as we as the impact of our Disaster Response, Disaster Preparedness and Deveopment projects. The experience aso shows that BPI can be an eement of anaysis that supports the inkage between aid or reief and onger-term recovery and deveopment. As a panning and impact assessment methodoogy and training initiative, BPI may aso be a capacity-buiding mechanism. Avaiabe reports In 2003, the Federation was schedued to pubish Aid: Supporting or Undermining Recovery? Lessons from the Better Programming Initiative,containing the essons earnt in six countries (Coombia, Liberia, Nigeria, Bangadesh, Tajikistan and Kosovo). Contact detais Inigo Barrena Disaster Preparedness and Poicy Department Internationa Federation of Red Cross and Red Crescent Societies Te:

61 CHAPTER 3 Appying confict sensitivity at project and programme eve Purpose of chapter The three modues in this chapter expain how to integrate confict sensitivity into projects and programmes at the foowing three stages of the project cyce: panning impementation monitoring and evauation Who shoud read it Practitioners invoved in managing projects and programmes at a stages, whether working in the fied or at headquarters, and regardess of whether they beong to civi society, government, internationa NGOs or donors. Why they shoud read it A project interventions impact on and are impacted by the context in which they are situated. In a confict-prone environment, a ack of confict sensitivity can resut in projects and programmes with unintended negative impacts, or which miss opportunities to contribute to peace. This chapter wi hep readers to buid in confict sensitivity during a three stages of the project ifecyce and, to the extent possibe, anticipate their wider impact so as to minimise negative impacts and maximise positive ones. Contents Introduction Modue 1. Confict-sensitive panning Modue 2. Confict-sensitive impementation Modue 3. Confict-sensitive monitoring and evauation Introduction Some definitions Confict sensitivity This means an awareness of the causes of historica, actua or potentia confict, and of the ikeihood of further confict and its ikey severity; and the capacity to work with a parties to reduce confict and / or minimise the risk of further confict. It invoves: understanding the operationa context understanding the interaction between an intervention and that context; the capacity to act upon this understanding to avoid negative impacts and maximize positive ones. Note: the word context is used rather than confict to make the point that a socio-economic and poitica tensions, root causes and structura factors are reevant to confict sensitivity because they a have the potentia to become vioent. Confict is sometimes erroneousy confused with macro-poitica vioence between two warring parties (as with a civi war between a nationa government and a non-state actor). Interventions Interventions can be at a variety of eves: project, programme, sectora (sector wide) and macro. Sectora (sector wide) and macro eves wi be discussed in Chapter 4. The primary aim of this chapter (modues 1 to 3) is to integrate confict sensitivity in projects and programmes throughout the project/programme cyce. See aso Chapter 1, Box 1. Programme A programme is a proposed pan with a medium to ong-term horizon and possiby without a defined end, often incorporating strategic objectives, mutipe projects and activities 1. Project A project is a set of time-bound activities typicay contributing to a arger programmatic objective, which are panned, impemented, monitored and evauated in reation to the issue or issues that they seek to address. 2 Confict anaysis Confict anaysis (expained in detai in Chapter 2) is centra to integrating confict sensitivity into projects and programmes. The approach is summarised in Tabe 1.

62 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 TABLE 1 The What and How of confict anaysis What to do How to do it Understand the context in which you operate Carry out a confict anaysis, and update it reguary Understand the interaction between your intervention and the context Use this understanding to avoid negative impacts and maximize positive impacts Link the confict anaysis with the programming cyce of your intervention Pan, impement, monitor and evauate your intervention in a confict sensitive fashion (incuding redesign when necessary) The project cyce This comprises the foowing key stages: panning: the process whereby probems are identified, their causa inkages anaysed, and effective soutions deveoped. The resut of this process may be embodied in a project or programme with predefined objectives, activities, impementation pans and indicators of progress impementation: the process of reaising objectives by enacting the activities designed in the panning process; it is the operationaisation of the proposa. Impementation invoves reguar progress reviews with adjustment of activities if necessary monitoring: the continuous process of examining the deivery of activity outputs to intended beneficiaries. It is carried out during the impementation of the activity, with the intention of immediatey correcting any deviation from operationa objectives. As such, monitoring reports generate data that can be used in evauation evauation: an assessment that takes pace at a specific point in time typicay at the end of a project in which objective procedures are used in a systematic way to judge the effectiveness of an ongoing or competed activity (eg project, programme, poicy) its design, impementation and overa resuts. The evauation concentrates on the reevance and fufiment of defined objectives, deveopmenta efficiency, effectiveness, impact and sustainabiity compared to a set of expicit or impicit standards. This chapter is organised according to these key stages in the project / programming cyce. The chapter expains both the key steps that must be taken to integrate confict sensitivity into each project/programme stage ( what ) and the process of impementing such steps ( how ). Endnotes 1 Adapted 2 Adapted from Loca Government and Pubic Service Reform Initiative, Gossary of Terms & Poaris Grant Gossary These stages of the project cyce are represented in the diagram beow, and situated within the confict anaysis (see Chapter 2 for a more detaied expanation of the diagram).

63 CHAPTER 3 MODULE 1 Confict-sensitive panning Purpose of modue To hep ensure that project / programme panning and impementation is confict-sensitive, by incorporating confict anaysis into needs assessments and confict sensitive design and panning. The modue wi hep the reader to: identify the wider impact of panned activities on factors reevant to confict ensure confict is fuy understood and inked to the needs assessment process ensure the needs assessment process is, in and of itsef, sensitive to confict. Contents 1. What is confict-sensitive panning? 2. Incorporating confict anaysis into the panning process 3. Steps for confict-sensitive panning 4. Chaenges 5. Endnotes 1. What is confict-sensitive panning? Panning has been defined as the process whereby certain probems are identified, their causa inkages anaysed, and effective soutions deveoped, which can be impemented as a project or programme with objectives, activities and indicators. Confict-sensitive panning brings in an additiona ingredient confict anaysis of the actors, causes, profie and dynamics in a given context with the aim of ensuring that the project or programme does not inadvertenty increase the ikeihood of vioent confict, but rather serves to reduce potentia or existing vioent confict. Confict-sensitive panning is caed for in contexts invoving a points aong the confict spectrum (from structura vioence to vioent confict), regardess of whether the project or programme is for humanitarian aid, peacebuiding, or deveopment; or whether the intention is to address confict directy or simpy to avoid indirecty exacerbating tensions. (See the Introduction to the Resource Pack for more information on the confict spectrum). Confict-sensitive panning is buit on the eements identified during the confict anaysis in reation to profie, causes, actors and dynamics, and situates project panning within this anaysis (see Chapter 2 for more information on confict anaysis). Confict-sensitive panning reates to both interventions that are defined through the confict anaysis, and to sensitising pre-defined interventions. A carefu project strategy, taking account of each of these eements, can be the key to just and peacefu outcomes and more durabe soutions. Because every activity is part of the confict dynamic, whether focussed in, on or around a particuar confict, confict sensitivity is reevant to projects and programmes that directy address confict as we as those which seek simpy to avoid indirecty exacerbating it. Thus, the confict anaysis needs to be integrated into the overa pan, and updated reguary. The overa pan can then be modified if necessary to refect changes in the anaysis. Panning in a confict-sensitive fashion is expored in more detai in section 3 beow. Understanding the context invoves taking the context (ie buiding on the confict anaysis triange deveoped in Chapter 2), and situating the intervention within it.

64 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 1 2. Incorporating the confict anaysis into the assessment process There are two ways of doing this: one is to ink the confict anaysis (see Chapter 2) to the needs assessment (see Chapter 2 section 4), the other is to integrate the confict anaysis and the needs assessment into one too. The advantages of having a stand-aone confict anaysis (inked) are that it expores the context in considerabe depth, is easier to update, and avoids confusion that may be created by using one too for two different purposes. The advantage of the second (integrated) approach is that it saves time and resources, and makes the processes of project design and confict anaysis more inter-reated, as steps in the project design wi raise questions regarding the context, which wi in turn ead to further questions on project design. Box 1 gives exampes of both approaches. BOX 1 Approaches to incorporating confict anaysis A. A two-stage process (inked) A Quraish, a deveopment organisation in Sri Lanka, use a two-stage process, but invert the stages so that the needs assessment process, a Participatory Rura Appraisa (PRA), precedes the probem (confict) tree anaysis. The initia PRA maps the socia wefare of the viage, expores in particuar the power reations by, for exampe, examining who benefits from government support, and the quaity of peope s dweings. The PRA is then suppemented by a two-day workshop, exporing with viagers the root causes of probems identified, using.36 a probem (confict) tree. For instance if poverty was the initia reason given for a chid dropping out of schoo, the issue wi be probed unti a probem junge emerges, with mutipe root reasons frequent resettement, destroyed identity documents, orphan status etc. B. A one-stage process (integrated) Agencies such as AHIMSA (Centre for Confict Resoution and Peace) and Hevetas in Sri Lanka have found that emphasising stakehoder participation in the needs assessment process and making it as comprehensive as possibe has reduced the ikeihood of their work causing or exacerbating confict. However, Hevetas noticed that attitudes and perceptions that affect conficts were missing from existing appraisa toos. They decided to incorporate sma compementary additions from confict anaysis toos into existing PRA methodoogies to sensitise them, rather than deveop a new assessment too. A PRA might, for instance, revea coser reationships among some actors than others. By incorporating eements of the Attitudes, Behaviours and Context Triange they coud expore why some reationships were coser and others more distant. Where reationships are noticeaby distant they add a box to the PRA stating why. Whichever approach is adopted, the goden rue for understanding the dynamics of a probem is to invove a possibe actors in the process of synthesising its key components.stakehoder participation shoud not end with the identification of probems; stakehoders shoud aso contribute to the anaysis of the causes and consequences of the probems. Most agencies with a minimum degree of confict sensitivity quote participatory processes as key to reducing confict or even as part of the strategy for a constructive resoution of a confict. Stakehoder-based anayses can provide a strong confict transformation function (an optimaist approach to confict anaysis), athough they are not in themseves concusive as the information they provide is perception-based and not trianguated. (See Chapter 2 Box 10 and Chapter 3.3 Box 2). 3. Key steps to sensitising the panning process The five key steps for confict-sensitive panning Step 1: Define intervention objective Step 2: Define intervention process Step 3: Deveop indicators Step 4: Link project to scenarios and prepare contingency pans Step 5: Design project concusion 3.1 The genera approach Panning a confict-sensitive intervention requires carefu and detaied exporation of the potentia impacts, direct and indirect, (a) of the proposed activities on the actors, causes, profie and dynamics reating to confict or potentia confict within the context, and (b) of the actors, causes, profie and dynamics on the proposed activities.

65 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Step 1: Define intervention objective Some organisations wi use the confict anaysis to define their intervention, ie they begin with no pre-conceived ideas of what the intervention wi be and use the anaysis to decide on the objectives, by ooking in particuar at the scenarios generated by the anaysis, and seeking to understand the possibe key causes of confict and how these may deveop over time. For instance, if the anaysis shows that water scarcity is expected to be a major source of confict in the near future, improved water suppy coud be seected as the project objective. Other organisations wi have a pre-determined programme / project, and wi use the confict anaysis to pan it in a confict-sensitive way. For exampe their mandate may be to construct wes, and they wi use the confict anaysis to determine where, when, how and for whom they wi do this, usuay through a process of prioritisation of causes and goas. Typica questions incude: which issues (eg water, heath care) or aspects of an issue (eg pastoraists competing for scarce access to water) appear to be most important? how does this choice reate to the context? To be sensitive to an existing confict, each question wi have to be reated to the confict anaysis (profie, actors, causes and dynamics) to see how the objective can be achieved in a way that wi minimise unintended negative impacts on any of these four eements, and maximise positive impacts. This means trying to forecast the impact of the intervention. The scenarios deveoped in the confict anaysis (see Chapter 2 section 2.4) shoud hep. The key is to consider the possibe interaction between the proposed intervention and these different future contexts. Either way, part of the design and strategy wi be cosey reated to the ogica framework anaysis. Thus the ogframe shoud incude not ony the overa objectives but aso a description of the proposed contribution to improving the confict situation (see Box 2). BOX 2 Oxfam s experience in Sri Lanka Oxfam in Sri Lanka adjusted their ogica framework anayses to understand how their projects affected the confict as we as human rights and iveihoods. They used a probem tree at the needs assessment stage to understand the underying causes of confict. They then adapted a ogframe by changing outputs to outcomes and reframing objectives and outcomes to reate to the identified causes of confict, and to show how those causes coud be addressed. Indicators for project inputs, activities, output, effect, and impact, were designed to measure the impact of the intervention on the context. Thus the ogframe became a too for confict sensitive design, monitoring and evauation. In order to understand the imitations, and the potentia areas where the intervention can have the greatest impact, four further questions need to be asked: what is my mandate? what is my capacity? what are other actors doing in this area? what is their capacity? (See next section) At the panning stage, the framework of contro versus assist versus infuence can hep individua organisations to understand the degree to which they can contribute to changes in any operationa context. Organisations need to understand which factors and issues they contro, which they can assist, and which they can infuence. They need to be honest as to what an intervention can be expected to deiver raising high expectations and faiing to deiver can cause tensions and utimatey ead to confict. Furthermore, understanding the joint impact of programming and interdependence with other actors wi hep outine where common approaches with compementary actors are necessary, or aternativey where a new intervention coud be counterproductive to existing work. 3.3 Step 2: Define the intervention process Having defined what the project objectives are, the intervention process itsef must be designed in a confict-sensitive fashion. The principes of transparency and accountabiity require deveoping a cear set of seection criteria for who, where, and when. Who: Project beneficiaries, project staff, and operationa partners Experiences with Mary B. Anderson s Do No Harm framework 1 show the importance (and, sometimes, interaction) of carefuy designed seection criteria for these three eements. Each of them can infuence the causes, actors and dynamics of confict in a positive or negative way. The identity of the persons or groups (ie their poitica affiiation, gender, caste, socio-economic profie, etc.) can have an important impact on the confict. The seection criteria shoud therefore be directy derived from the confict anaysis and the project objective. Project beneficiaries The seection of beneficiaries must reate to both the needs assessment (or other form of assessment) and the confict anaysis: is the seection based on need (ie in terms of equity)? or shoud an entire community benefit, irrespective of differences in need (ie seection based on equaity)? how does the seection reate to divisions within a community and what are the impications of that?

66 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 1 An equity-based approach, which by definition cannot favour incusiveness, woud normay require the use of seection criteria to determine who fas within the beneficiary group. This improves the transparency of the intervention. In some situations the community themseves decide who shoud be the beneficiaries, generating and impementing the seection criteria. Such processes may require carefuy buit-in safeguards to ensure equitabe resuts eg so that no one group is abe to dominate and excude other groups. Project staff Loca and expatriate staff can both bring either benefits or disadvantages. Certain nationaities may be seen as biased because of poitica tensions between the host country and their country of origin or may be generay we received if there is a history of friendship. Speaking oca anguages or diaects can be a key eement of confict sensitivity, but oca staff may not aways be perceived as neutra. Staffing can be a key eement of confict sensitivity (see Box 3). Situating the proposed intervention within the confict anaysis shoud revea such sensitivities. Success in mediation and intervention in disputes often hinges on the status of the intervener. Sometimes it may be usefu to be abe to speak the anguage of oca poitics; on other occasions someone totay unencumbered by oca knowedge may be more effective. Foreigners, particuary in paces with a coonia history, are ceary identified as outsiders; their otherness may be a severe handicap, or a great advantage, depending on the context. They need to know which. BOX 3 ZOA Staffing and confict sensitivity ZOA, a Dutch NGO working in Sri Lanka, takes great care when recruiting fied staff to choose peope who are respected by a communities present, who are senior figures, and who are perceived as neutra. Neutraity can sometimes be enhanced by recruiting someone from a nearby proximate but different area, who is somewhat removed from the situation. Maintaining cose reationships with communities is considered crucia for confict sensitive panning and impementation, and fied staff remain amost constanty in the fied. However, a baance must be struck so that fied staff do not ose their neutraity by getting too cose to the communities. Operationa partners Deveoping partnerships is a chaenging process and needs to be undertaken with care. Many of the issues shoud be reveaed through the confict anaysis. Of particuar concern is the understanding of who the actors are, and what their reationships are with other actors. For instance, it may be that a potentia partner organisation has inks to an armed group, or that personne move reguary between the potentia partner and the armed group. In some situations confict protagonists have gained egitimacy through partnerships with internationa actors. Such knowedge can be acquired ony by a thorough confict anaysis, focussing on the actors. Equay important are the perceptions project participants have of the potentia partners. They may be perceived as biased, insensitive to confict, or to have inks with potentia or existing confict protagonists. Whether or not these perceptions are grounded in reaity, they are part of the operationa context and shoud be taken into account in decisions about partnerships. The capacity of potentia partners is aso important: what staff do they have? What is their mandate? What is their track record? What are the prospects for capacity buiding? CARE Sri Lanka have deveoped a partner assessment too, eading to a process of partner capacity buiding (see Box 4). The decision to engage in such capacity deveopment remains context- specific in some situations an open and honest diaogue with potentia partners on their confict sensitivity coud form part of a process of buiding this sensitivity. In other situations this may not be possibe, and a decision may be taken not to engage in capacity deveopment, not to engage with the partner at a, or to engage ony in ways that buid on what capacity the partner aready has. BOX 4 CARE Sri Lanka As part of the engagement process with partners, CARE Sri Lanka use an Institutiona Deveopment and Organisationa Strengthening Anaysis (ID/OS), a co-operative assessment of the strengths and weaknesses of the partner organisation. This eads to a joint agreement on institutiona capacity buiding. Part of the anaysis addresses the partner s abiity to conduct a confict anaysis and to understand their own roe in confict. Assessment of the capacity of the intervening actors to impact confict and peace is an essentia part of assessing the potentia for confict and peace. Even if an institution has the responsibiity for impementing a programme, it may not have the capacity. This is often true for governments or civi society in confict-prone or -affected countries. Internationa institutions often jump in to fi the gap, but they must be carefu not to repace government capacity, creating a parae system that impedes deveopment of oca capacity in the ong term. A proactive strategy of capacity buiding may be the best option, even (in some cases) at the cost of ow performance. Staff concerned with impementation may not understand how the programmes/projects being impemented or

67 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 1 5 supported impact on confict and peace. They often see these issues as outside their operating situation, and overook both their own potentia for positive or negative impact, and the capacity of their organisation to make a significant difference. Invovement in the confict anaysis, programme deveopment and monitoring and evauation wi hep broaden their horizons, and perceptions. Where: which geographic area to support Determining the geographic area of support requires a fu refection of the reationship between the outcomes of the needs assessment process and the confict anaysis. It shoud aso be deveoped with the input of a sectors of the community. The seection can have a direct infuence on a confict context, for instance by exacerbating the vioation of and rights, by providing (often unintended) support to certain miitary or economic interests, or by egitimising the poitica power of some groups or individuas. These are cases where an intervention can inadvertenty exacerbate confict (and even directy endanger the ives of the popuation) or miss the opportunity to mitigate it. Remember too that most interventions wi not benefit the entire popuation; there wi inevitaby be non-beneficiary peope or communities ocated at varying proximity to the beneficiaries. The transparency of beneficiary seection has been addressed above, but it may be necessary to communicate this more widey, or even to broaden the seection, perhaps in coordination with other intervening organisations. It is important to understand the geographic determination of the beneficiary community does it fa aong ines of division? Coud it worsen an existing division or create a new one? If the intervention specificay seeks to impact confict, then this focus in itsef wi determine geographic ocations for operation. These questions shoud a be addressed through the confict anaysis, ensuring that the intervention is targeted at the geographic eve (eg nationa, district, oca) appropriate to the context. When: Timing and ength of intervention In confict situations, time management is a core resource. Severa essons earned documents on confict-reated panning have highighted the importance of timing in the injection of resources. Again, inking back to the confict anaysis is key. Two eements of the anaysis demand particuar attention: confict triggers and scenarios. Confict triggers may be time-bound, such as an eection or annua cyces of offensives inked to seasona changes. Understanding triggers is important in deciding when to start and when to exit, and when contempating any major changes in the intervention. Scenarios (see Chapter 2 Section 2.4) shoud be reated to the proposed project timeine, and assessed for potentia windows of opportunity or vunerabiities. This may invove a refection on the motivations behind the timeine is the ength of intervention being defined by organisationa objectives, resource constraints, or by the needs of the context? 3.4 Step 3: Deveop indicators Confict-sensitive indicators fa into three principa categories: Confict indicators, deveoped during the confict anaysis stage, are used to monitor the progression of confict factors against an appropriate baseine, and to provide targets against which to set contingency panning Project indicators monitor the efficiency, effectiveness, impact and sustainabiity of the project Interaction indicators, deveoped during the panning stage by taking the information gathered during the confict anaysis and appying it to the project panning process, are used to monitor and evauate the interaction between the project and confict factors by (a) measuring the impact the project is having on confict (eg restricted access to safe drinking water no onger antagonises ethnic minority); and, obversey, (b) measuring the impact confict factors are having on the project (eg number of staff approached by miitants for financia donations ; rising tensions make inter-group activities difficut to conduct). Chapter 2 (section 3) provides a description of confict indicators, and Chapter 3.3 (step 2(c)) detais the deveopment of interaction indicators. Most organisations aready empoy programme or project indicators as a means of measuring the outputs and impact of their work against a baseine determined at the outset. Given the weath of information avaiabe on project indicators 2, they are not examined here in any depth. However, as a confict-sensitive project wi have confict-reated outputs and impacts, these wi need to be refected in the project indicators. Project indicators shoud enabe measurement of the various aspects (profies, actors, causes and dynamics) of the context that may be affected by the project. Interventions are commony undertaken in partnership. It wi be usefu to have indicators that measure the impact of the actions of each partner. This is not simpy to attribute credit, or bame, but rather to identify which approaches worked we, which did not work we, and why. Contribution programming is a way of attributing impact to different actors, and of understanding that no one actor aone is entirey responsibe for a given situation. It is aso a key concept in the area of confict where rea resuts are the consequence of the combined actions of different parties (see Modue 3 for further detais).

68 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Step 4: Link project to scenarios and prepare contingency pans In the absence of carefu contingency panning, proactive programme impementers may react with potentiay i-conceived responses when quicky changing contextua environments throw up difficut circumstances. For exampe, if confict dynamics rapidy deteriorate, an organisation may make a snap decision to evacuate, possiby eaving nationa staff at risk and beneficiaries suddeny without support. Contingency pans define predetermined strategies for reacting to specific changes in the operationa context. Put another way, if confict dynamics deteriorate to a particuar point, what actions wi be required (see Event and Response coumns in Box 5 beow)? How wi they be carried out? Who wi undertake them? Within what timeframes? Contingency pans are designed using scenarios (see Chapter 2 section 2.4) in conjunction with confict-sensitive indicators that monitor the evoution of a given confict dynamic (see above). A natura reaction to increased insecurity and vioence is for impementers to move the project to the nationa capita or hat operations in the hope that things may soon improve. There is aso an unfortunate tendency for contingency pans to focus on expatriate staff and negect nationa staff and partners atogether. Confict-sensitive contingency pans wi need to incude security for a situations and a peope staff, partners and beneficiaries. A we thought out confict-sensitive contingency pan wi aow for a continued eve of engagement in a wide variety of difficut circumstances based on the organisation s detaied knowedge of the various profies, causes, actors and dynamics. Shoud evacuation be required, a confict-sensitive contingency pan wi ensure a eve of continued support and safety for staff who are not abe to eave the region or country. Contingency pans wi aow for a eve of stabiity and measured responses to difficut circumstances. The pans shoud aow for a degree of fexibiity so that impementers may respond appropriatey to circumstances as they arise, based on the detaied knowedge they have gained through the confict anaysis and carefu monitoring of confict-sensitive indicators. During the atter part of the armed confict in Sri Lanka, CARE deveoped a Risk Management Matrix to foresee possibe events and pan adjustments in the project to mitigate the impact of the confict dynamics on the project. Tabe 1 gives an adapted exampe of the format and the anaysis of an actua risk. TABLE 1 Risk Management Matrix Event Probabiity Response Risk Management Description: Description: Description: Description: Brief description of the event and its consequences on both project and popuation Leve of risk as the seriousness of the consequences: Low/ Medium/ High Brief description of historica occurrences and of potentia reasons or cases in which the event coud take pace Degree of probabiity: Unikey (10%) Possibe (20 to 40%), Probabe (50% and up) Reaction from the project to adapt to the new or temporary circumstance Measures in pace for eary warning and for immediate response. Exampe: Exampe: Exampe: Exampe: Security situation in project areas deteriorates causing dispacement, destruction and reduction of socio-economic conditions. Project deveopment strategy can no onger be effective. (Natura disasters in the area coud have simiar consequences). Risk: Medium/ High This has happened before (most peope have been dispaced more than once). In the past, such events have aways been temporary and conditions have recenty improved. The situation must be seriousy considered for the safety of the staff and project participants. (Natura disasters are possibe though not as probabe). Possibe: 30% The project refocuses on the secondary group of participants defined in the needs assessment (if in condition to benefit from the onger term deveopment approach). The project impementation schedue is reviewed to aow for some of the staff to be temporariy diverted to the immediate, emergency work with previous participants. The security situation is reviewed every week to enhance the abiity to predict possibe changes in the security situation of project areas. Permanent emergency funds have been secured from headquarters in order to maintain responsibiity towards donors and provide reief support as we.

69 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Step 5: Designing the project concusion - sustainabiity, structura change and project evoution Projects and programmes eventuay come to an end. To ensure they remain confict-sensitive throughout the project cyce, the project concusion must be panned and executed in a sensitive manner. Broady speaking there are three approaches avaiabe: (a) withdrawa at termination of project; (b) extension of project; and (c) foowing up the project with a new phase. To confict-sensitise this stage of panning, exit strategies need to be fexibe enough to address changes in confict dynamics, but proactive enough to ensure beneficiaries expectations are not unduy raised. Decisions shoud be we thought out, and shoud respond to dynamics identified through the confict anaysis and subsequent monitoring. One approach to maintaining the baance between proactive panning and fexibiity is to deveop a menu of exit strategies that are reviewed throughout project impementation against the updated confict anaysis and reguar monitoring. As the end of the intervention nears, the most appropriate exit strategy can be chosen. Eary deveopment of a variety of exit strategies wi hep to ensure that the eventua exit has been we thought out; is effectivey communicated (aong with other possibe strategies and their associated triggers) at every stage of the project to minimise unreaistic expectations by staff and beneficiaries; and responds to the confict dynamics identified through the updated confict anaysis. Whie the menu may create some ambiguity, this is a price worth paying to ensure that beneficiaries and others are prepared for the exit when it comes. For projects that are intended to phase out competey, sustainabe soutions need to be confict sensitive. Most peacebuiding and deveopment projects foresee a strategy of sustainabe structures that stay behind to guarantee that the benefits of the intervention wi remain in the ong term. In order to make sustainabiity confict sensitive, exit strategy panning needs to ink back to the confict anaysis and scenarios, to see how they interact with these structures. Ensuring the sustainabiity of remaining structures and processes may require mainstreaming confict sensitivity in oca organisations and teaching confict anaysis skis to oca partners. For projects that intend to extend or adapt into new phases, it wi be important to ensure that new interventions take into account any changes in confict dynamics. Using the contingency pans outined in Step 4 wi hep ensure that future approaches refect not ony the best-case scenarios but aso the worst. The project shoud buid on the successes of the previous project. Whether the exit strategy is panned to be a compete phase-out or an adaptation into a new intervention, it is vitay important to pan for a proper concusion of the initia intervention, incuding a comprehensive evauation. In some cases the most negative impacts of interventions come not from their impementation, but rather from a poory designed exit strategy (eg the impacts of an otherwise favourabe intervention can be undermined when project staff, partners and suppiers suddeny find that their contracts wi not be renewed). A we-panned exit strategy wi not ony hep to sea the success of the initia project and eave a strong foundation for future interventions, but wi aso reduce the possibiity of continuing existing activities or designing new ones that cause or exacerbate confict. Panning for the next intervention before the current intervention has competed its impementation phase is ceary not without its chaenges. Nevertheess, thinking ceary and reaisticay about an exit strategy in a manner that baances being fexibe with being proactive wi hep ensure the intervention is confict-sensitive not ony in its current phase, but beyond its anticipated ifespan. 4. Chaenges 4.1 Reations with centra and oca authorities Confict sensitive panning and identification inevitaby raise the question of conditionaity. Centra and oca authorities that interact with the intervention may have poicies or approaches that appear insensitive to confict and risk, undermining the objectives of the intervention. As part of the panning phase, the intervening organisation may fee the need to effect changes in existing poicies or practices of authorities to meet the minima conditions required for a project or programme to succeed. Confict-reated conditions may incude, for exampe, state wiingness to support the independence of the justice system, or to pay appropriate saaries for security sector personne. To make the impementation of a programme conditiona on the partners meeting these terms often requires a poitica commitment that is beyond the scope of panners. Finding aies and deveoping commitments from a eves of the intervening organisation wi ensure that the issue of conditionaity does not remain with panners, but can instead receive the attention and support of the entire organisation. The approach adopted by many organisations is to introduce the issue of initia conditions in the first stages of design, and ater refect the issue in evauations and poicy papers, in an attempt to make the diemma more visibe to poitica decision makers.

70 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Information networks Confict sensitive programming requires networks to provide information on the context, and the interaction of the intervention with that context. Many organisations have existing information networks, and these may require further expansion to capture the sensitive and context-specific information required to monitor reevant changes and impacts. The principe of transparency may need quaification in this situation, as information sources sometimes require protection, and the information they provide might need to be treated with confidentiaity. This is a context-specific question, but ceary sources shoud not be put at risk. A particuary innovative information network has been created by A Quraish in Sri Lanka invoving Peace Birds (see Box 5). BOX 5 Peace Birds A Quraish has deveoped a unique network of Peace Birds throughout the three divided communities in which it works. A Quraish originated as a sports cub, athough has now transformed into a deveopment actor. The origina sports cub members, representing a three communities, underwent confict transformation and confict anaysis training. They now openy act as information conduits, unearthing and providing crucia information at moments of crisis. 4.3 Reations with donors This panning modue has predominanty used an impementing agency s perspective in describing the various eements invoved in confict-sensitising a panning process. Donors of course do panning too. The foowing paragraphs address the unique chaenges donors face in confict-sensitising their panning processes, and outine some of the issues governments and NGOs need to consider in interacting with their donors on issues of confict sensitivity. Many donors rey on a tender process where the donor pans the project sometimes down to specific detais ike how many days one particuar type of technica advisor wi spend supporting the intervention and organisations bid by submitting an impementation pan and associated budget. This panning modue has argued that a project pan must be tied to some sort of confict anaysis. If donors do not undertake a confict anaysis, do not tie the project pan to the anaysis, but instead design the pan based on an assessment that is then imposed on bidders, then ensuring a confict-sensitive intervention wi be highy probematic. Further, the time required by most donors to conceive of an initia intervention idea, design it, secure the necessary interna funding, and then proceed through a steps of the bidding process means that any initia assumptions about confict dynamics are often outdated by the time project impementation finay begins. Even if the initia project panning incorporated key eements of confict sensitivity and was deveoped in a timey manner, many tenders necessitate a eve of infexibiity that is at odds with confict sensitivity: forced partnerships, restricted timing, specific ocation, and detaied specifics about the intervention itsef. Donor-funded projects that do not use a tender process aso face chaenges reated to confict sensitivity. Whie DFID (UK) has recenty untied its aid, some donors sti require that funding favour goods and services from their respective countries. The cearest exampe of tied aid and its potentia for negativey impacting confict is monetisation. Recipients are offered a product from the donor s country in ieu of cash. The recipient then ses the commodity in the country in which they operate and uses the revenue to fund an approved project. Monetisation can undermine oca production and distribution networks and fue corruption, patronage and other root causes of confict. Whether or not aid is tied, donors that wish to confict-sensitise their funding reationships coud request appicants to incude confict anayses with their proposas in addition to the gender and environmenta impact assessments most currenty demand. A confict sensitive end-of-project evauation shoud aso be required. In both cases, donors shoud provide the resources required to support these additiona components. More broady, donors can confict-sensitise their funding reationships by conducting their own broad confict anaysis and then evauating projects on the basis of how they fit into the confict dynamic (in addition to the reguar criteria). The confict assessment required from funding appicants shoud be seen as compementary to the confict assessment conducted by the donor agency itsef, and cases of contradiction shoud be seen as opportunities to earn more about the compexity of the confict dynamic. Box 6 iustrates a too used by one agency to anayse incoming proposas against the ikeihood of their negativey impacting on confict dynamics (the agency,care, is usuay considered a generaist internationa deveopment NGO, but in this case was acting as a donor, being responsibe for funding grants and evauating project proposas submitted by other organisations).

71 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 1 9 BOX 6 Micro project confict sensitive seection criteria Impact on confict A B C D Impacts on other communities Has incuded preferences / priorities in project proposa Considers preferences/ priorities of neighbouring communities Avoids worsening tensions, or supports connections between communities Wi increase tension with other communities Effects of resources on perceptions and reationships Increases mutua dependency and communication between communities Reduces harmfu competition / suspicion / biases Avoids creating or worsening harmfu competition / suspicion / biases Increases harmfu competition / suspicion in communities Ethica aspects Modes and promotes constructive vaues* Reduces ethica probems and opportunities Avoids harmfu behaviour, reationships, and messages Can ead to provocations, harmfu behaviour or messages Risk of vioence Increases capacity of peope and communities to abstain from being invoved / exposed to vioence Reduces the vunerabiity of peope and communities to vioence Avoids pacing peope and communities at (more) risk from vioence Paces peope and communities at (more) risk from vioence. * Constructive vaues might incude toerance, acceptance of differences, incusiveness etc. Accepting funding from some donors may impy poitica support or an affiiation that coud jeopardise the impementer s confict sensitivity. Both peacebuiding and human rights work are premised on the poitica independence of the impementing agency. This has boosted the invovement of civi society during the past twenty years, often structured into NGOs, unions and reigious groups. The imited number of donors and the mutipication of sophisticated fundraising actors and thus increased competition for scarce funding resources have ed to the emergence of a rea quandary for panning the deveopment of such activities: shoud impementers remain sma but independent, or shoud they aign with pubic funding priorities and grow? Some toos, such as the Cingendae Confict and Poicy Assessment Framework (see Chapter 2, Annex 1, item 9), advise using a cost-benefit anaysis to define the true cost of a particuar objective in confict prevention in reation to other objectives. Such anaytica toos hep decision-making not ony regarding project activities at the impementation eve, but aso on wider programmatic issues, such as aigning with externa funding objectives, at a eves of an organisation. Box 7 summarises some of the measures adopted by organisations to secure operationa capacity and independence. BOX 7 Independence strategies The Internationa Committee of the Red Cross (ICRC) refuses strict earmarking: to guarantee its protection mandate, the ICRC refuses funds which are earmarked beow the country eve. Even though interna reporting is sector and popuation specific, donor reporting is more generic, and ceary distinguishes eves of confidentiaity, even in evauations. Amnesty Internationa refuses to accept state funding, and instead reies excusivey on the mobiisation of nationa chapters for fundraising or panning and impementation of campaigns. Many internationa NGOs engage and shape donor poicy, often through poicy feedback mechanisms designed as project outputs.

72 10 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 1 5. Endnotes 1 Mary B. Anderson (ed), Essays from fied experiences, Cambridge Mass: CDA, Inc: See, for exampe, Frances Rubin, A Basic Guide to Evauation for Deveopment Workers, Oxford: Oxfam, 1995

73 CHAPTER 3 MODULE 2 Confict-sensitive impementation Purpose of modue To hep ensure that project and programme impementation remains confict-sensitive, through the understanding of key project management and impementation issues. This wi hep the reader to set up, impement, monitor and adjust the project and programme in a confict-sensitive manner. (The intended audience incudes donors: whie they generay impement projects through other agencies, they often have a strong infuence on a project or programme s impementation, and many of the arge INGOs are themseves donors to smaer NGOs.) Contents 1. What is confict-sensitive impementation? 2. Key stages of confict-sensitive impementation 3. Chaenges 4. Endnotes Annex 1: Draft principes of operation for agencies providing humanitarian assistance in Sri Lanka 1. What is confict-sensitive impementation? Impementation is the process of achieving objectives by undertaking activities designed in the panning process. It invoves reguar progress reviews and adjustment of activities as required. Confict sensitive impementation additionay invoves cose scrutiny of the operationa context through reguary updating the confict anaysis, inking this understanding of the context to the objective and process of achieving the activities, and adjusting these activities accordingy. It buids on the confict anaysis and panning processes (see Chapter 2 and Chapter 3 Modue 1). The key eements are to: sensitivey manage the process of impementation (activities, staffing, information networks, finances etc) reguary monitor the operationa context and the interaction between the intervention and the context, using the indicators defined in the confict anaysis and panning stages adjust the project in ight of new information gathered through monitoring, focusing particuary on the objectives and the process of impementation. BOX 1 Key eements of confict-sensitive impementation Management invoves the abiity to see the bigger picture: how a the eements of the intervention, its operationa context and the interaction between the two, fit together. It invoves supervising the entire process of impementation and making operationa decisions. Monitoring requires gathering, reviewing and anaysing information in order to measure progress and change using the confict indicators, project indicators, and interaction indicators described in Modues 1 and 3, and Chapter 2. Adjustment means changing the pan in response to unforeseen changes of circumstance. The choices of what, who, where, and when may periodicay require ateration and may change substantiay. In certain situations more extreme measures may be required, such as fundamentay changing the project s impementation approach.

74 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 BOX 2 Faiure to understand the context Exampe 1 (vioent confict): Purchasing a vehice may seem ike an innocuous activity. However, even this reativey minor activity coud be highy confict insensitive. Purchasing the vehice from a given suppier can support one group or actor over another. The funds received from the sae of the car coud be diverted to the war economy, or be taxed by a confict actor. It is not uncommon for INGO vehices, bearing their organisation s ogos to be taken and used by miitary or other confict actors. Exampe 2 (structura vioence): In rura Nepa, a deveopment organisation impemented a project designed to empower members of the ower castes. As part of their education, the trainees earned that they enjoy equa rights to those of other castes within their community. One of the trainees chose to exercise his right at a subsequent viage meeting by sitting on a chair aongside members of higher castes. The higher caste members who themseves had not benefited from caste empowerment training were upset by what they saw as an inappropriate actions by the ower caste member, and physicay assauted him. Understanding the context is crucia to confict-sensitive impementation. As the two exampes in Box 2 demonstrate, activities that may be we-intentioned, or even apparenty unreated to confict dynamics, can unintentionay exacerbate confict factors if the context is not we understood. Effectivey monitoring, managing and adjusting an intervention requires efficient information networks. To effectivey trianguate information (see Chapter 2, Box 10), these networks wi be based on mutipe sources and shoud be set up in the panning stage. Such information networks can prove particuary chaenging in confict-affected contexts, or situations at risk of vioent confict, as information that is poiticay sensitive may be difficut to obtain (see Chapter 3 Modue 1). Equay important is the commitment to honest sef-refection and earning. Ony through such commitment can changes be made to the objectives and process of impementation to ensure that an intervention remains confict-sensitive. 2. Key steps to sensitise the impementation process Most confict sensitive impementation work is undertaken at the panning phase and through the confict anaysis. The four foowing steps then buid on this prior work. The four key steps in confict sensitive impementation and management Step 1: Refer back to the confict anaysis Step 2: Set up the project a) Prepare and/or assess pans of operation b) Negotiate project contract issues and sites c) Co-ordination d) Define security procedures Step 3: Impement, monitor and adjust the project a) Impement and monitor b) Adjust to the context and the interaction Step 4: Confict-sensitive project phase out 2.1 Step 1: Refer back to the confict anaysis If time has eapsed between the panning and impementation stages, the confict anaysis shoud be reviewed and updated. This may require a revision of the decisions made during panning, such as the seection of partners and beneficiaries, the timing of the intervention, and even the objectives of the intervention. Some of the chaenges presented by changing impementation modaities tied to donor funding are expored ater in this modue. 2.2 Step 2: Set up the project Preparing and / or assessing pans of operation It is good practice to engage a parties when deveoping operating pans, incuding seeking their input and feedback on the timing and contents of the pans. This engagement shoud begin in the panning stage, but continue during impementation as the pans become further feshed out and operationaised. Contingency panning shoud aso be reviewed. Maintain fexibiity in the pans.

75 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 3 Bringing in donors, decision makers and impementing organisations at this preparatory stage wi hep them to understand the context better, and wi hep to generate a common understanding of the ikeihood of changes of context and needs in the project areas Negotiating project contract issues and access to sites Programmes are often impemented through a chain of subcontracting or cooperation agreements, and your organisation may have ony periphera contact with the affected popuations. Partner seection has been addressed under panning, but it is important, when impementing, to monitor the sensitivity of partners and subcontractors. This can be achieved by reguary updating the actor anaysis component of the confict assessment through an active partnership approach, independent vaidations (eg evauation visits), or regionay based information networks. Likewise, suppy chain contracts for the provision of goods such as construction materias, vehices or foodstuffs need to incorporate confict sensitivity (see Box 3). BOX 3 Suppy chains and peacebuiding in Sri Lanka The Socio-Economic Deveopment Organisation (SEDOT) needs rubbe and sand to construct dweings for dispaced persons who are returning to their viage. The sand and rubbe are each sourced in riva communities. SEDOT hopes to turn the suppy contracting of construction materias into a peacebuiding opportunity by capitaising on cross-community economic exchange to transform community confict. Provisions for confict sensitivity can aso be incuded when negotiating contracts and performance objectives with staff. This may mean a proactive capacity-buiding stance to ensure staff deveopment (see Chapter 5). Simpy because of the nature of a given context, the administration of resources (as we as management of perceptions about how they are administered) can be a major source of tension and greaty exacerbate confict or potentia confict. Fied staff may not have access to banking faciities, thus the payment of wages can present chaenges. Payment for goods can aso be susceptibe to corruption in some contexts, perhaps commending the use of purchase orders over cash payments. The choice of bank and signing authority can aso convey certain messages. BOX 4 Negotiating access or co-operation The negotiation of access and of the intervention strategy can be a good first opportunity to set the ground rues of the reationship between donors, organisations and oca authorities. In some cases, it can be beneficia to bring together as many interested parties as possibe to remind a actors of everyone s obigation for proper accountabiity and quaity. Nevertheess, care is needed over the incusion of parties who contro or infuence access, as their incusion coud resut in the perceived or rea egitimisation of their power, and increase their capacity to exert contro, even over project activities. For instance in Somaia, foowing the 1992 miitary intervention, humanitarian assistance was severey disrupted by miitias, whose abiity to use vioence prompted humanitarians to negotiate with them for access. These negotiations contributed to the egitimisation of the miitias who were then abe to gain an internationa audience. As with a aspects of project impementation, the confict anaysis is key in understanding who these potentia negotiating parties are, what dynamics coud be fueed, and how to cope with any probems. The ocation an organisation chooses for its headquarters or regiona head offices can impy stronger reationships with one group over another be it rura / urban or divided communities in different ocations. Physica separation from beneficiaries may aso undermine your abiity to monitor and manage interventions, and potentiay strain reations between fied and headquarters. In some circumstances, negotiating access to specific areas or communities can present specific chaenges (see Box 4) Co-ordination Co-ordination between organisations in any given area is important to: optimise sharing of information and anaysis avoid overap in activities, and rationaise use of resources avoid situations where interveners are trying to carve out a niche for themseves avoid counter-productive programming. At certain eves of confict, it can become imperative to negotiate with other organisations or groups to deveop a common set of guideines or rues of engagement. For instance, in Sri Lanka, a group of donors and organisations came together to co-ordinate their work and define common perspectives and principes of operation in confict-affected areas. And in Northern Uganda, a consortium of INGOs under Word Vision eadership is conducting a joint confict anaysis. Annex 1 to this modue

76 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 summarises an exampe from Sri Lanka of the principes that can be appied when operating in confict prone or affected areas. Note that such co-ordinating principes are not confict-sensitive uness they are respected and impemented effectivey. Experience with Operation Lifeine Sudan shows that this does not aways happen Defining security procedures In situations of vioent confict, the impementation strategy of the project may inadvertenty pose a serious threat to the safety of staff, beneficiaries and partners. Different approaches are usuay adopted with the objective of ensuring their safety: contingency panning must contain security procedures. These shoud be defined in the panning phase (see Chapter 3 Modue 1) and contain pre-determined pans of action. The monitoring process shoud feed into this codes of conduct and guideines, such as Amnesty Internationa s, can incorporate security procedures (see Box 5) staff safety can be increased and contro systems impemented through the use of speciaised advisers (for exampe the network of security consutants operated by the UN security office, UNSECOORD). Many pubications focus on these increased staff safety and contro systems, such as Save the Chidren s Safety First guideines 1 staff negotiating and anaytica skis can usuay be improved through training an image of transparency and impartiaity can be cutivated by encouraging open communication and participation and avoiding any threatening conduct. BOX 5 Security guideines Amnesty Internationa has deveoped a series of guideines for human rights activists in the fied. These reate to staff procedures, and incude specific advice regarding security of staff, of those providing information, and of those about whom the information is concerned. It detais the accountabiity of staff for their own and others security, and defines the procedures the organisation wi take if staff, providers of information or those whose rights have been vioated, are put at risk. 2.3 Step 3: Impement, monitor and adjust the project Impement and monitor Having set up the operationa aspects of the project, the next step is to begin impementation. Potentia or actua confict is inherenty dynamic, and the operating environment wi change over time as profie, causes, actors, and their dynamic interactions change and evove. Centra to ensuring a confict sensitive process is to monitor (and periodicay evauate) the context and the interaction of the intervention with that context; to re-assess the appropriateness of project parameters (such as the choice of beneficiaries, the timing of the intervention) in ight of changes; and to adjust accordingy. Monitoring is discussed in the panning modue (Chapter 3, Modue 1), and in more detai in the modue on monitoring and evauation (Chapter 3, Modue 3) Adjusting to the context and the interaction A baance must be struck between the fexibiity necessary to be confict sensitive, and the commitment to existing pans. Understanding the roe of the intervention in the changing context is key to determining the appropriate reaction to the situation. Some of the most common forms of adjustment are set out beow: Adjust programming Ensuring that the intervention remains reevant depends on timey adjustments of project parameters according to a consistent sef-assessment. Thus the choice of in what way, with whom, where, and when the intervention is impemented may require review and change. Adjust contingency pans Monitoring procedures may revea unforeseen circumstances for which contingency pans wi need to be adjusted. Adopt an advocacy roe The advocacy roe gives priority to the non-confrontationa presentation of compaints and queries to responsibe authorities in a manner acceptabe to those authorities. This approach impies a degree of confidentiaity and trust, based on constant verification of the imits to acceptabe behaviour, and on the avoidance of any form of coercion. It requires continua presence on ocation, and a high degree of toerance to confict instigators. Adopt a support roe In situations where the authorities are weak or simpy dysfunctiona, but socia order sti prevais, the support roe mobiises energies from a wide range of sources for the achievement of certain ife-saving actions. This roe is predominant, for exampe, with NGOs working around or with faied state administrations, and when conditions ead to chronic human rights vioations. Re-negotiate ground rues Ground rues and terms of access have been noted in Box 4 and Annex 1. In the event of a breach of agreement, these ground rues may need to be re-affirmed or re-negotiated. Freeze operations Where a programme or project is found to be unexpectedy negativey impacting on the context, or the context is negativey impacting on the

77 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 5 intervention, it may be necessary to temporariy pace impementation on hod unti a more confict-sensitive approach can be deveoped. The period for freezing impementation must be kept to an absoute minimum so beneficiaries, suppiers and staff do not suffer additiona hardships. Further, the intervention must adjust to meet the newy deveoping context waiting for the context to change such that it meets the intervention s impementation pan is simpy not confict-sensitive. Denunciation This approach paces a greater price on respect for vaues than on the continuation of programmes, and was the founding principe of Médecins Sans Frontières which prefers to withdraw from an area rather than continue to provide assistance that coud proong a destructive status quo. Denunciation may pace personne under considerabe pressure, even insecurity, and must be buit on an abiity to pu out easiy. For peacebuiders, the principe of impartiaity and the need to maintain reationships with a actors effectivey precude denunciation. Abandonment Even though the criteria for the exceptiona decision to suddeny terminate a project shoud be defined from the start, confict-sensitive impementation must eave open the way for substantia adjustments to fit the evoving context. A decision to withdraw shoud be seen as a ast resort, and taken ony if a carefu review of the context (see freezing operations above) reveas that the intervention cannot be adjusted to interact positivey with its context. If a decision to abandon an intervention is taken, confict sensitivity becomes particuary important. Proper exit management wi consider first the safety of everyone invoved (not ony project staff) and wi aso put in pace adequate mechanisms for the preservation of the project s impact. More than ever, for a confict-sensitive withdrawa, there is a need to review the confict anaysis to understand the consequences of different termination strategies and how each approach to abandonment wi affect actors and dynamics of confict. UNHCR in Burundi has resorted to buiding ess capita intensive structures in provinces from which it might have to withdraw, and to investing more in training and socia mobiisation. Many agencies sti strugge during the preparation phase to define the minimum space required for impementation in highy voatie environments. Options and methods for withdrawing confict-sensitivey and more importanty, for adjusting impementation to refect an evoving context become cearer during impementation when monitoring can be used to reguary update the confict anaysis. 2.4 Step 4: Confict-sensitive project phase out At the concusion of the project, the pans for confict-sensitive phase out are impemented. These have been discussed in the panning modue (see Chapter 3 Modue 1). 3. Chaenges for confict-sensitive impementation 3.1 Being fexibe Being fexibe is crucia to confict sensitivity, and nowhere is this more important than in the impementation phase. The voatiity of confict dynamics reguary resuts in the unexpected. A constant diaogue with a parties and reguary updating the confict anaysis wi minimise the number (and degree) of surprises. The process of adjusting programming has been discussed under step above. However, to enabe such fexibiity on the part of impementers aso requires fexibiity on the part of funders. Sound administrative and financia systems normay demand rigorous expenditure panning, monthy cosing and reconciing of accounts, periodic budget audits, and severa other rather rigid requirements. As a confict or potentia confict unfods, these requirements can greaty constrain impementers fexibiity and easiy threaten the ife or impact of the intervention. However, both impementer and funder bear an equa responsibiity for the finances and the successfu impementation of the project. Most funding schemes and impementation strategies can be adjusted if the parties agree with the need for changes. From the beginning, impementers shoud ook for acceptabe adjustments of norma budget requirements to support the specific context of the operation. They shoud have a good understanding of the mechanisms (funding systems, contract management rues, conceptua and impementing aternatives, etc) avaiabe and pan for reguar reviews over the duration of the project. Finay, impementers shoud maintain a fuid diaogue between donor and impementing agency (incuding during the financia panning stage and about possibe contingency budget modifications).

78 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 Donors are aso partners, with equa responsibiity to see a project to competion. The reationship between impementers and donors requires transparency and trust, such that honest progress updates can be made even when impementation is atered by the context. Likewise, when impementers find that the intervention is having a negative impact on the context, a frank and honest exchange with donors on how to become more confict sensitive shoud be faciitated. Frequent and honest diaogue between donor and impementer improves knowedge and earning on both sides and enabes better project impementation. 3.2 Learning essons The processes of monitoring and adjusting (steps and above) provide substantia opportunities for earning essons. Interventions in an ongoing confict or potentia confict situation have added responsibiity of higher accountabiity for impact and depend on appying good practices and essons earned as an effective way of contributing to that impact. Activey refecting on practices that have been incorporated as part of the project objective and deveoping a earning cuture wi aso hep contribute to a positive impact. Impementers shoud aso consider bringing the communities into the anaysis and evauation processes, using an ongoing confict anaysis to identify key confict environments and actors, and integrating them into existing information systems. 3.3 Buiding and maintaining reationships During impementation, the project becomes not ony a systemic part of the context but aso a dynamic eement of it as a resut of the different reations and interactions with other actors (eg communities, impementing organisations, donors, authorities). Constructive confict management shoud form a common goa across a spectrum of actors, both within and beyond the project area. Use this goa as the starting point of every negotiation or activity as it wi generate a greater capacity to discover common soutions, and be strategic about the reationships you deveop. The actor anaysis undertaken during the confict anaysis wi hep. Project participants: Trust and participation To gain trust and participation from beneficiaries requires commitment and hard work. Seek to: engage the communities in as many panning and reviewing activities as possibe and activey seek their input (this engagement wi require the introduction of specific systems that wi ensure the effective participation of communities and avoid the risk of unbaanced invovement) avoid behaviour that may be misinterpreted by oca actors maximise participation at a eves of the project to buid mutua trust project success may depend not ony on the trust beneficiaries have in interveners, but aso in how much interveners trust beneficiaries pan a constructive engagement with beneficiaries to positivey infuence the context. Project staff: Interna diaogue and safety Conficts and potentia conficts usuay have an important impact on project staff. Be sure to: reinforce constructive messages and nurture an atmosphere of diaogue enabe staff to perform their activities without endangering their safety make staff fee respected for their work in difficut conditions ensure management systems do not affect confict dynamics in a negative manner be mindfu of impicit messages that coud damage capacity to constructivey address confict dynamics through the ethnic or caste composition of staff, suspicion, unnecessary security measures that increase anxiety, saary poicies, gender biases, and other management practices inconsistent with the context. Partners: Transparency and accountabiity Transparency and accountabiity shoud guide the deepening of reationships. use basic (but strict) rues of partnership be mindfu of unequa reations between powerfu institutions and oca smaer structures of civi society as this inequaity may undermine the abiity to deveop an open diaogue negotiate basic rues of accountabiity and independence that can hep ensure an equitabe reationship. It is common practice to impement through oca partners. If accountabiity is ensured, this is usuay a positive approach as this process can itsef support the strengthening of civi society in cases where confict dynamics have undermined the socia fabric. The seection of partners can provide an important opportunity to foster diaogue and trust within the oca civi society. Do No Harm anayses have reveaed that by setting up committees where a oca actors participate using transparent rues of seection, the process can resut in the identification of appropriate partner agencies. Equay importanty, the committees can set an exampe and space for trust and diaogue that may have previousy been absent.

79 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Endnotes 1 Mark Cutts and Aan Dinge, Safety First: Protecting NGO empoyees who work in areas of confict 2 nd Edition, Save the Chidren, Annex 1 Draft principes of operation for agencies providing humanitarian assistance in Sri Lanka (abridged) 1. Humanitarian imperative Agencies recognize that the right to receive humanitarian assistance, and to offer it, is a fundamenta humanitarian principe that shoud be enjoyed by a citizens of a countries. Our primary motivation for working is to improve the human condition and aeviate human suffering, faciitating the returnee process with different communities taking into consideration their security and their rights. 2. Non-discrimination Agencies foow a poicy of non-discrimination regarding ethnic origin, sex, nationaity, reigion, sexua orientation, poitica orientation, marita status or age in regard to the target popuations with whom we work. 3. Respect for cuture and custom Agencies respect the oca cuture, reigions and traditions of the peope of Sri Lanka. 4. Independence Agencies function independenty from a governments, government controed / organized bodies, poitica parties. Agencies set independent poicies, design their own programmes and use impementation strategies which they beieve are in the best interests of the humanitarian needs of individuas, famiies, and communities of the target popuation and utimatey in the best ong-term interests of the peope. Seect where they work, seect beneficiaries, seect the most appropriate form of intervention based on their organizationa mandate, their independent assessment of need and organizationa capacity. Do not knowingy gather information of a poitica, miitary or economicay sensitive nature for governments or other bodies that may serve purposes other than those purposes that are stricty humanitarian. Provide funds and project materias directy to project beneficiaries. Agencies do not provide funds or materias directy or indirecty to government departments or parastata organizations for project impementation. Humanitarian Agencies shoud have unimpeded access to the popuation of potentia beneficiaries. Internationa humanitarian organizations must have unimpeded access to oca partners who have the capacity to impement projects efficienty and with accountabiity. 5. Monitoring and accountabiity Agencies are accountabe to donors and beneficiaries and adopt and impement necessary monitoring mechanisms to ensure a assistance reaches the intended targeted beneficiaries. Humanitarian agencies must be abe to freey monitor the impementation of projects impemented with designated funds sourced for the said purpose. 5.1 Financia accountabiity Agencies consider themseves stewards of donors' funds and accept that responsibiity with the utmost seriousness and have contro systems in pace to ensure that financia resources and assets are used soey by and for their intended project beneficiaries and are not diverted by the government or any other party Accessibiity Agencies work directy with and have direct access to project beneficiaries and their communities to assess, evauate and monitor projects. 6. Transportation / Taxation Persons engaged in humanitarian assistance, their transport and suppies sha be respected and protected. They sha not be the object of attack or other acts of vioence. Based on the principe that donated funds designated by the donors for specific purposes shoud be used fuy for the said purposes, such funds or materias, or abour secured by such funds, shoud not be subject to taxation in any form. 7. Rights-based programming and advocacy Agencies respect fundamenta human rights as defined by the United Nations and our programmes take a constructive proactive approach to advocate for rights of

80 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 2 individuas as consistent with programme objectives in the communities where we work. The fundamenta right of a IDPs to return vountariy to their homes in condition of safety and dignity must be fuy respected. The estabishment of their conditions is primariy the responsibiity of those who are governing the said areas. This must be recognized as an essentia prerequisite to materia intervention by humanitarian agencies. The rights of beneficiaries, in particuar women, to fuy participate in the design of projects panned for impementation in their communities must be respected. 8. Capacity buiding Agencies seek to operate in a way that supports civi society and buids the capacity of human resources in the country. 9. Sustainabiity Agencies empoy a diverse set of strategies with a ong-term goa of achieving a suitabe impact in their programming. Sustainabiity can be defined in a number of different ways, incuding the ong-term impact of specific intervention foowing the cosure of a project, continued financia viabiity of an institution, or capacity buit within the community, within oca community-based organizations or among staff members. Different agencies may empoy different definitions and different methods, but a consider sustainabiity of paramount importance and strive to achieve it. 10. INGO co-operation Agencies exercise mutua respect for each agency's mandate methodoogy, independence and sef-determination. Agencies practice transparency and confidentiaity in engaging in a reguar diaogue with one another regarding these principes and encourage one another to maintain the highest possibe eve of ethica programming. Agencies encourage and support additiona agencies entering the country to deveop and undertake responsibe ethica programming to provide needed humanitarian assistance. 11. Loca NGO Participation The situation is now conducive for oca NGOs to be made knowedgeabe of humanitarian principes and to impement activities more effectivey and efficienty. Therefore we consider it as an opportunity for humanitarian agencies to invite them to participate in training and capacity buiding programmes, in panning, monitoring and evauating activities targeting the popuation in need, and inking them with both government and NGOs.

81 CHAPTER 3 MODULE 3 Confict-sensitive monitoring and evauation Purpose of modue To hep the reader to design and impement a monitoring and evauation system that captures the interaction between project and context, and to identify reevant indicators to monitor this interaction. The monitoring system shoud seek to measure the impact of the intervention on the changing context and vice versa, and to enabe programming to be adjusted if necessary to ensure optimum confict sensitivity. The evauation system shoud seek to identify essons for improving confict-sensitive panning and impementation in the future. Contents 1. Confict-sensitive monitoring and evauation 2. Key steps in confict-sensitive monitoring and evauation 3. Key issues in confict-sensitive monitoring and evauation 4. Endnotes Annex 1: Sampe indicators inks between context changes and project, and project changes and context 1. What is confict-sensitive monitoring and evauation? Monitoring is the process of reguary examining a project s actua outputs and impacts during impementation. It provides the project team with current information that enabes them to assess progress in meeting project objectives, and to adjust impementation activities if necessary. It aso generates data that can be used for evauation purposes. Confict-sensitive monitoring wi enabe project staff to gain a detaied understanding of the context, the intervention, and the interaction between the two. It introduces an understanding of confict actors, profie, causes and dynamics into traditiona monitoring processes and activities to inform required adjustments and changes to project or programme activities. In this way, confict sensitive monitoring heps ensure the intervention has as positive an impact as possibe on confict dynamics. Evauation is a one-off assessment that typicay takes pace at the end of a project, athough it can aso be undertaken as a mid-project review. On the basis of systematicay appied objective criteria, an evauation assesses the design, impementation and overa resuts of an ongoing or competed project in reation to its stated goas and objectives. Confict-sensitive evauation introduces a detaied understanding of actors, profie, causes and dynamics into traditiona evauation activities and processes. Confict-sensitive evauations are used to understand the overa impact a given intervention has had on its context, and the context on the intervention. These evauations can then be used to adjust subsequent phases of an ongoing initiative, and / or provide essons for future initiatives. In other words, whie traditiona monitoring and evauation focus primariy on assessing the intended and actua outputs of a given project, confict-sensitive monitoring and evauation aso requires: an understanding of the context as it changes over time measuring of the interaction between the project and the context.

82 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 It shoud be noted that confict sensitive monitoring and evauation is sti in the eary stages of deveopment; this modue presents thinking current at the time of writing but shoud not be taken as the definitive statement on the subject. Outstanding chaenges incude, for exampe, the deveopment of indicators (see steps 2 and 3 beow). Because confict-sensitive monitoring and evauation is very much context- and activity- specific, it is difficut to offer specific guidance; indicators that are usefu in one case are generay not transferabe to other situations. Despite the chaenges, this modue does offer a perspective on current thinking in the area of confict-sensitive monitoring and evauation, incuding some new approaches to outstanding issues. 2. Key steps in confict sensitising monitoring and evauation Broady speaking, traditiona monitoring and evauation processes are organised around the foowing steps: The five key steps in monitoring and evauation Step 1: Decide when to monitor or evauate Step 2: Design monitoring and evauation process Step 3: Coect information Step 4: Anayse information Step 5: Recommend and redesign The introduction of confict sensitivity into the process does not change these basic steps; it does, however, change the way in which they are appied. The main differences are highighted in this modue. 2.1 Step 1: Decide when to monitor and evauate Traditiona monitoring and evauation processes are typicay organised around pre-defined timeframes outined in the project documents (eg quartery and annua reports, end of project, new project phase). Integrating confict sensitivity into the monitoring and evauation processes and activities may require changes in timing to reate the timing of these processes to significant aspects of the confict profie, causes and dynamics identified by the confict anaysis. For exampe, a project s reguary schedued monitoring work may inadvertenty take pace at the same time as an eection or the period eading up to it, but the understanding of the oca context gained from the confict anaysis may suggest that this is not appropriate (eg if there is a history of vioence during eection times, reiabe information may be harder to obtain then than at other times). Aternativey, an evauation trip may be schedued to avoid monsoon rains or cod winter months in order to faciitate trave, ogistics and comfort, but evauators may then miss important aspects of human interactions and attitudes prevaent at those times and crucia to the assessment. Decisions about when to monitor and evauate which are dictated by institutiona and funding requirements shoud be systematicay reviewed to assess the impact of the preferred timing on the context that is, through inking the proposed timing to the confict anaysis. Such timing adjustments may prove chaenging to both financia reporting requirements and funders. 2.2 Step 2: Design monitoring and evauation process In addition to typica outputs from traditiona monitoring and evauation, confict sensitive monitoring and evauation assesses the interaction between the context and the project. In order to understand this interaction the process shoud be designed around three primary issues: (a) understanding the context and changes in the context; (b) understanding the intervention, incuding its impementation; and (c) measuring the interaction between the two. (a) Understanding the changing context As outined in Chapter 2, a confict anaysis can be used to provide an understanding of the context in which project interventions are situated, and to track changes that occur. In particuar, the confict indicators deveoped at the confict anaysis stage wi hep systematicay monitor changes in the context in terms of confict profie, causes, actors, and dynamics. However, some organisations may not have a confict anaysis at the time they want to start sensitising their monitoring or evauation; or they may have a confict anaysis that has become outdated. For monitoring purposes, if a confict anaysis does not exist it wi suffice to conduct a current anaysis and to begin incorporating confict indicators from this point forward. This confict anaysis wi provide the baseine from which to monitor and ater evauate changes in the context. The depth and scope of the confict anaysis shoud be appropriate to the existing or anticipated intervention and your organisation s capacity. If on the

83 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 3 other hand the confict anaysis is outdated, there is no need to redo it simpy deveop (if none exist) or use the confict indicators from the initia anaysis to monitor changes in the operating context. If you are conducting an evauation, then given the importance of a confict anaysis to create a baseine, a retroactive confict anaysis shoud be undertaken using past reports and other information sources to estimate the situation prior to the start of the intervention. (b) Understanding the project impementation As confict sensitive monitoring and evauation focuses on the interaction between the context and the intervention, it is important to understand the project s intended and actua impementation. Intended impementation, activities and approaches purpose and scope of the activity geographic ocation of the project project beneficiaries and partners timeframe funding eve and sources. The information outined above can generay be found in the project proposa and approved impementation pans. Actua impementation, activities and approaches who are the project partners and beneficiaries? And why? what have been successes and chaenges? were any activities undertaken that had not been envisaged during the panning? Why? were any adjustments made from the initia strategy? Why? have any activities been changed or canceed? were there probems with staff (eg security, motivation)? This information is typicay found through the monitoring of traditiona project indicators that were designed in the panning stage. You may want to ensure that the questions above can be answered through your initia project monitoring indicators, and add or adjust indicators as necessary. When gathering this information for an evauation, reference can be made to previous monitoring reports. It is important, however, to gather other perspectives that may not be refected in these reports: designed as they usuay are for a specific audience they may not fuy capture the project s impementation reaities (see trianguation beow, Chapter 2 Box 10, and Modue 1 section 3.2 of this chapter). (c) Understanding the interaction between the context and the project As described in Modue 1 of this chapter, there are three eements to confict sensitive indicators: confict indicators are used to monitor the progression of confict factors against an appropriate baseine, and to provide targets against which to set contingency panning (see Chapter 2). project indicators monitor the efficiency, effectiveness, impact and sustainabiity of the project (see Modue 1 and Annex 1 of this chapter). interaction indicators (see Modue 1 of this chapter) are created at the panning phase of the project in order to measure the interaction between the context and the project. Specificay, interaction indicators are used to monitor the impact of the project on the context, and of the context on the project. For exampe, if the context tes you that corruption amongst oca government officias is a contributing confict cause, and the project invoves buiding the capacity of oca government officias, then an interaction indicator wi measure both: the project s effect on corruption amongst oca government officias the effect of corruption amongst oca government officias on the project. A key chaenge practitioners face when undertaking confict sensitive monitoring and evauation is the issue of agency or causaity. For exampe, an NGO may be working in a remote viage to provide access to water resources in a way that is equitabe between two ethnic groups an issue identified as key in a confict anaysis. Foowing the successfu impementation of the project, evauators using interaction indicators find that inter-marriage rates between the two ethnic groups have increased. The chaenge of confict-sensitive evauation resides in the attribution of this change: is increased inter-marriage a resut of the project intervention? Of interventions by other actors operating at the same and other eves? Or of changes in the context that are unreated to externa actors? The highy simpified schematic that foows demonstrates the difficuty of determining the causa ink between in this exampe the project intervention and a change in inter-ethnic marriage rates. Most contexts are substantiay more compex than outined in this diagram.

84 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 Diagram 1 1 Confict-sensitive monitoring and evauation must recognise that there is not aways a direct cause-and-effect reationship between the context and the project. In this sense, good enough thinking is required as confict-sensitive monitoring and evauation can never provide absoute certainty. It is nevertheess important to anticipate the chaenge posed by causaity when deveoping confict-sensitive indicators. Good indicators often seek not to address directy the interaction between the project and the context, but to focus instead on more indirect causa manifestations of this interaction (eg not did my project contribute to reduce discrimination? but are there parts of the district that are safe for some groups and not for others? ). Because every context is unique and can change dramaticay over short periods of time, it is not possibe to provide a definitive ist of confict-sensitive indicators that practitioners can use or adopt to their own situations. In addition to the guideines outined above, it is, however, possibe to outine a genera approach to deveoping indicators for confict-sensitive monitoring and evauation. Annex 1 uses a fictionaised context to provide a detaied breakdown of the type of anaysis and indirect questioning that is usefu for deveoping confict sensitive indicators. Box 1 beow provides some actua exampes of using indirect indicators to hep determine impact. BOX 1 Oxfam Sri Lanka Oxfam Sri Lanka have deveoped a series of confict sensitive indicators to evauate their peacebuiding work (this seeks to buid reationships and supporting inks within and between communities, to empower peope to transform confict, and to deveop the anaysis and resoution skis of partners). In one programme the reationships are buit using inter-community exchanges. Indicators quantitative and quaitative were deveoped by the beneficiary communities, and are crosschecked by Oxfam. Indicators of the growing reationships between two previousy divided communities incude: having difficuty saying goodbye at the end of an encounter event communications taking pace between individuas in different communities above and beyond those organised by the programme (etters, further visits, inter-marriage) the formaities of visiting do visitors behave, and are they treated, as reatives rather than as strangers? (What kinds of gifts do they bring? Does the anguage used indicate a distant or cose reationship?) the use of a path that woud be regarded as unsafe at times of tension. In order to gauge whether the reationship buiding has had a wider peacebuiding effect, Oxfam has ooked at those who were not directy invoved in the actua project (both within each famiy and in the community more broady) to see if they have been affected by the project. Indicators incude: a Buddhist monk aowing announcements to be made in Tami (a anguage generay not used by Sri Lankan Buddhists) from the tempe comparisons between beneficiary and non-beneficiary viages. Foowing a high profie poitica assassination the non-beneficiary viages became tense, whie the beneficiary viage continued as norma. Showing attribution continues to prove a difficut task, and remains an open question for Oxfam. The three dimensions of confict sensitive monitoring and evauation outined above understanding the changing context, understanding the project impementation, understanding the interaction between the context and the project provide a means of designing a confict-sensitive monitoring and evauation process. They may aso inform the identification of required skis within the monitoring or evauation team, which are ikey to incude: confict anaysis skis good knowedge of the context and reated history sensitivity to the oca context oca anguage skis monitoring and evauation expertise (incuding interviewing skis). Finay, it is important to keep in mind that there is currenty no cear way of assigning attribution for the consoidation of peace to any one particuar actor. Given the compexity of most contexts, intervening actors wi at best be abe to demonstrate that their positive interventions coincided with positive changes in the context. Project and programme goas and objectives for buiding peace wi need to be humbe and reaistic.

85 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue Step 3: Coect information Coecting information is fundamenta to the process of monitoring and evauation. Confict-sensitive information wi need to incude a combination of perception-based and objective data. Perception-based information As expained above, confict-sensitive monitoring and evauation cannot assume a direct causa reationship between the context and the project. In order to increase confidence in information coected, the perceptions of respondents can provide additiona perspectives on causa reationships. Perception-based information can be derived from the foowing sources: executors of the activity: eg project staff, partners and impementing agencies beneficiaries of the activity: eg recipients of project outcomes (services, goods, training) observers of the activity: eg other organisations operating inside and outside the area, experts, academics, nationa and oca eaders. Athough this may not be an obvious category of respondents, their indirect invovement in the project and / or presence in the context may hep ensure a more baanced understanding of the interaction. The strength of perception-based information primariy depends on an honest and impartia composition of the ist of respondents. If it is not possibe to find unbiased respondents, it may hep to get a baance of biases from among a interviewees. Evauators aso face a unique perception-reated issue, as former project beneficiaries may use an end of project evauation as an opportunity to deiver positive and uncritica feedback on the interaction between the project and the context, in the hope of securing future assistance or empoyment. Objective information Just as perception-based information heps address the issue of causaity, objective information can be used to provide additiona perspectives. Where perception-based information reies on views, beiefs and feeings of respondents, objective information seeks to provide ess controversia or more factua data. Sources for objective data are entirey context specific eg news media may sometimes be a good source of objective information, but in a different context or at a different time information reported may be entirey perception-based. The principa reason for combining objective and perception-based information in the process of confict sensitive monitoring and evauation is trianguation. In other words, information received from one source is compared and contrasted to simiar information received from another, in an effort to gain a more comprehensive understanding of the interaction between the intervention and the context. From a confict-sensitive perspective, perceptions sometimes provide more information than facts or the truth. It is important to trianguate data within one information source, just as it is important to trianguate information sources. For exampe, within one community interviewers shoud tak to a representative cross-section of the popuation, from government officias to unempoyed youth, as we as individuas (athough perhaps not eaders) from major socia and occupationa groups. As mentioned above, project staff and observers not directy reated to the project aso provide a means of trianguating perception-based information from the fied. BOX 2 Trianguation through types of questions The way in which information is gathered can aso be diversified to eicit a variety of perspectives. In Northern Uganda, for exampe, interviewers using open questions asked respondents what has been done about the oca situation and by whom? Cosed questions, on the other hand, eicit a yes or no response: do you fee safe? Scaing asks respondents to rank their responses: compared to five years ago, are oca government officias today much more, more, the same, ess, or much ess corrupt? Each form of questioning has advantages and disadvantages, and the best resuts are achieved by using a variety of different techniques. However, the perspectives of peope invoved in the community provide ony one source of information (abeit diversified within the source), so it is aso important to trianguate sources, for exampe, by reviewing secondary materias such as foreign government-sponsored country reports through a desk study, as we as soiciting the views of speciaists. Focus groups, stakehoder and feedback workshops, and quantitative surveys provide other means of trianguating information sources. Confict-sensitive monitoring and evauation requires that organisations acknowedge the potentia impact of the monitoring or evauation process itsef on the confict dynamics. Gathering information for monitoring and evauation may have negative outcomes, such as putting community members at risk by raising suspicion or asking sensitive questions. Questions that are acceptabe in one context may endanger interviewers and respondents in another. Interviewers may inadvertenty upset respondents with probing, insensitive questions. Diaogue must aways be based on mutua consent and respect, and the understanding that the consequences of the interview may ast we beyond the discussion. Measures must be taken to ensure the safety at a times of both interviewers and respondents.

86 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 In situations of vioent confict, monitoring or evauating projects often becomes quite difficut. Whie it is often possibe to impement projects in such environments through oca partners and community-based organisations or other means, it is sometimes not feasibe to send externa staff or consutants into the area to monitor or evauate activities. Organisations tend to fear that outsiders may be at risk in vioent environments, and that ocas may be endangered by taking to these outsiders. The strugge to monitor or evauate their projects effectivey under circumstances of vioent confict sometimes eads organisations to rey on teephone conversations and photographic evidence. Confict-sensitive monitoring and evauation must find ways of safey interacting with respondents in these types of environments; unfortunatey this chaenge remains unresoved. 2.4 Step 4: Anayse information The anaysis of the information gathered for confict-sensitive monitoring and evauation wi require some attempt at discerning causa inkages, despite the difficuties. Athough there is no estabished framework for anaysing confict sensitive information, two stages may hep in the anaytica process: find the most effective way to structure the information, in order to reduce the compexity of the data and, more importanty, to understand key inkages between the project and the context. For exampe, the grids or toos which most confict anaysis frameworks use to simpify the anaytica process are sometimes aso appropriate for confict-sensitive monitoring and evauation. further prioritise and deepen the inkages identified through trianguation. For exampe, in Centra Azerbaijan, interviews with project beneficiaries in one viage reveaed that they were upset about the unequa distribution of benefits between them and the neighbouring viage. Discussion with the impementation organisation showed that the benefits provided to both viages were identica. Rather than discount the disgrunted viage perspective as incorrect, it is better to understand the community s perceptions about unequa benefit distribution, particuary in the ight of contradicting objective information, as reveaing an important issue for further investigation, monitoring, and possiby action. 2.5 Step 5: Recommend and redesign Report There is no need to write a specific confict-sensitive report on monitoring or evauation activities. It is however important to integrate the findings and recommendations of the anaysis of the interaction between the context and the project into reguar reporting (eg quartery, annua, mid-term and fina reports). It wi be particuary hepfu to outine expicity the impact of the intervention on its context (ie the peace-buiding or confict impact) and of the context on the intervention. This wi provide a documented history of organisationa earning on confict-sensitive practice. Consideration of the type and sensitivity of information to be incuded in reports shoud be determined by reference to the confict anaysis. In a cases, the sensitive handing of privacy and anonymity shoud be expicity agreed upon not ony for the monitoring and evauation process but aso at the reporting stage Feedback Organisations need to take responsibiity for the resuts of confict-sensitive monitoring and evauation, and for transforming those resuts into improved practice. Gaining organisationa commitment to make these changes may however require a focussed feedback strategy to ensure that recommendations are impemented (see Chapter 5). Recommendations from confict-sensitive monitoring and evauation may inform decisions regarding the (re-)design or further adjustment of project activities and their impementation, in ight of the interaction between the context and the project. Modue 2 on impementation provides guidance on how to take this process further. 3. Key issues in confict-sensitive monitoring and evauation The foowing key issues shoud be kept in mind in the process of confict sensitising a monitoring or evauation process: a) monitoring and evauation are typicay extractive processes, as interviewers take information from respondents and offer itte in direct return. Confict-sensitive monitoring and evauation can aso be an extractive process, or it can be more transformative. By invoving respondents in the process of indicator deveopment and anaysis, monitors and evauators can hep peope understand their own pace in and possiby even their contribution to a given context.

87 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 7 Transformative processes can potentiay produce positive resuts; however, they invove risks simiar to those outined in step 2.3 (coect information) above, but with potentiay more serious consequences b) as with everything in this Resource Pack, the emphasis is on confict-sensitising existing programmatic processes, rather than deveoping entirey new ones. For monitoring and evauation, this means confict-sensitising a existing steps in the process, from the design to reporting and beyond. The process of confict-sensitising monitoring and evauation wi require additiona resources. For instance, organisationa and institutiona support for increased staff capacity deveopment wi be needed (see Chapter 5). Sufficient time to review and adjust existing toos and processes, as we as additiona time to monitor or evauate confict and interaction indicators wi aso be essentia c) there is sometimes a tendency in monitoring and evauating to underestimate the importance of the profie, actors, causes and dynamics that function at other eves. A viage-focused intervention may, for exampe, not consider the impication of nationa actors (eg poitica parties) or internationa dynamics (eg the foreign poicies of other governments) on the oca context. Aternativey, some monitors and evauators wi focus amost entirey on the macro context, and in particuar on the macro poitica context, by emphasizing the activities and statements of warring factions, whie ignoring the contribution made to confict dynamics at the oca eve. Understanding the context as it is expressed at various different geographic scaes is fundamenta to understanding the context at the eve the intervention is taking pace d) confict-sensitive recommendations may prove chaenging for staff within organisations, as we as within the institutiona funding chain, as they require a different understanding of success. Organisations (and, if reevant, their funders) typicay measure activities and outputs, such as number of houses buit, number of wes dug, number of participants attending a meeting, rather than impact. A confict-sensitive organisation wi aso want to pace a high vaue on its projects interactions with the context. Thus, a project that underperforms on the anticipated number of houses buit may, from a confict sensitive perspective, sti be considered a success if it contributed positivey to confict dynamics. Given that the definition of a successfu project can be controversia, organisations may have difficuty in vauing an under-performing confict-sensitive project over a we-performing project that unintentionay exacerbates confict (see Box 3). Enhancing the way an organisation understands success requires an institutiona wiingness and abiity to think differenty about how it measures impact. (See Chapter 5). BOX 3 Difficut decisions (a fictionaised account) Organisation A s most important current initiative is a housing construction project. Foowing a confict-sensitive monitoring assessment, the team determined that core eements of the project inherenty exacerbate confict. These findings wi present significant chaenges at mutipe eves within Organisation A, and wi test its commitment to confict sensitivity. The monitoring team wi have to deiver a negative report about a favoured project; the project team wi need to take responsibiity for managing a project that entais (previousy unknown) damaging aspects; and management wi need to expain to their funders or executive management that what was previousy touted as an exempary initiative is in fact fundamentay fawed. In these types of situations, the typica response is for one or severa eements of the organisation to decide that the monitoring assessment itsef was fawed, rather than open the prized project to criticism. Monitoring or evauating a project from a confict-sensitive perspective is of itte vaue uness essons are earned and requisite changes made. 4. Endnotes 1 Adapted from Cathy McIwaine and Caroine Moser, Urban Poor Perceptions of Vioence and Excusion in Coombia, Washington DC: Word Bank, 2000: 65. Annex 1 Sampe indicators inks between context changes and project, and project changes and context The foowing tabe is provided for the purposes of better understanding what situation-specific interaction indicators might actuay ook ike. The tabe uses a fictiona setting to outine the types of changes that might indicate an interaction between the context and the project, and associated indicators that coud be used to better understand these changes and thus the interaction. Note that the sampe interaction indicators provided use a combination of objective and perceptive questioning to hep trianguate information coection; objective and perception based indicators are discussed in step 3 above.

88 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 3 Modue 3 Background Kugan is a poor deveoping country. The nationa government is undertaking a road construction project through the northern region to create a trade ink with the neighbouring country of Moyag. The road right-of-way has been ceared and eveed, but asphating has not yet begun. Northern Kugan is a sparsey popuated region dominated by pastoraists and catte herders. There is vioent confict in the adjacent region of Moyag, and arms proiferation in Northern Kugan has become a probem. Another probem is the invovement of Kugan ocas in rusting catte for Moyag-based gangs. Project s impact on context are changes in the context inked to the project? Change in profie: Environmenta degradation, and in particuar, deforestation. Project-reated question or suspicion: Is road construction contributing to deforestation? Indicators: 1: respondents who fee the natura habitat has improved/ deteriorated 2: changes in the price of cut wood 3: percentage of road through forested areas. Change in causes: Increase in sma arms proiferation. Project-reated question or suspicion: Is road construction faciitating the trafficking of sma arms? Indicators 1: number of respondents who fee there has been an increase in sma arms proiferation (since road construction began) 2: change in incidences of gun reated vioence aong road 3: number of respondents who fee it is easier/ harder to purchase a gun compared to off-road respondents. Change in actors: Access to education for rura youth. Project-reated question or suspicion: Is road under construction aready increasing transportation options for rura youth? Indicators: 1: number of youth attending schoos accessed by road 2: number of days average student attends one of these schoos 3: number of respondents who fee the road has increased access to schooing. Change in dynamics: Decreased incidences of catte rusting. Project-reated question or suspicion: Is increased access to empoyment and income undermining the need to ruste catte? Indicators: 1: change in eve of househod income on road compared to off road incomes 2: percentage change in househods that fee they have better iveihood options 3: change in incidences and number of catte stoen. Context s impact on project are changes in the project inked to the context? Change in project: The road is now being constructed in a straight ine and thus at a ower cost. Profie-reated question or suspicion: Is there government pressure on pastoraists to surrender and so road can be constructed in a straight ine? Indicators: 1: pastoraists perception about the benefit of the road 2: changes in rea construction expenditures compared to project budget 3: pastoraists feeings about the road being a government project compared to other respondents (eg catte herders). Change in project: Payro offices being robbed. Causes-reated question or suspicion: Are bandits using increasingy avaiabe sma arms to rob construction payro offices? Indicators: 1: incidences of robberies and amount stoen 2: number of robberies that invove sma arms 3: respondents who perceive the road buiding project is not a proper prioritisation of community needs. Change in project: Fue being stoen from construction vehices. Actors-reated question or suspicion: Are poor catte herders seeking to derive benefits from road project by steaing fue from construction vehices? Indicators: 1: itres of fue stoen 2: catte herders feeings about expenditure on road 3: change in saes by catte herders traditiona fue sources. Change in project: Labour for project has become hard to find. Dynamics-reated question or suspicion: Are potentia construction workers not seeking empoyment on the road project because of their concerns about increased insecurity? Indicators: 1: number of vacancies unfied in road construction jobs 2: percentage of construction workers who fee safe working in the area 3: number of construction workers who eave the construction camps at night.

89 CHAPTER 4 Integrating confict sensitivity into sectora approaches Purpose of chapter This chapter expains: what is meant by sectora approaches how to integrate confict sensitivity into the deveopment and impementation of sectora approaches Who shoud read it Everybody invoved in the process of deveoping and impementing sectora approaches, incuding: centra and oca governments donors (biatera and mutiatera) civi society groups, INGOs and other impementing agencies. Why they shoud read it Because assistance to a country or sector (eg education, agricuture, infrastructure) wi have an impact (either positive or negative) on confict risks and dynamics particuary in countries which are affected by, or at risk of, vioent confict. It is therefore imperative that this assistance be impemented in a confict-sensitive way. Contents 1. Introduction 2. What are confict-sensitive sectora approaches? 3. Seeking to achieve confict-sensitive sectora approaches Annex 1: Exampes of inkages between structura dimensions of tension/open confict and deveopment assistance Annex 2: Bibiography and further reading Note: in Apri 2004, a sectora approach case study (justice sector) wi be avaiabe as a suppement to this chapter of the Resource Pack. Pease see in Apri for more detais. 1. Introduction 1.1 Some definitions Confict sensitivity This means the abiity of your organisation to: understand the context in which you operate; understand the interaction between your intervention and the context; and act upon the understanding of this interaction, in order to avoid negative impacts and maximise positive impacts. Note: the word context is used rather than confict to make the point that a socio-economic and poitica tensions, root causes and structura factors are reevant to confict sensitivity because they a have the potentia to become vioent. Confict is sometimes erroneousy confused with macro-poitica vioence between two warring parties (as with a civi war between a nationa government and a non-state actor). Context This refers to the operating environment, which ranges from the micro to the macro eve (eg community, district / province / region, country, neighbouring countries). For the purposes of this Resource Pack, context means a geographic or socia environment where confict exists (see Introduction for a description of the various eements in the confict spectrum). It comprises actors, causes, profie and dynamics. Sectora approaches Sectora approaches invove a partnership between donors and governments based on a government-ed nationa poverty reduction framework, within which there are programme priorities for specific sectors (eg heath, education). Donor assistance aims at heping the government to improve its performance generay, or the performance of a specific sector or sectors.

90 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter More about sectora approaches Sectora approaches are aso known by some donors as Sector Wide Approaches (SWAPs), Programme Based Approaches (PBAs), or Sector Wide Groups (SWGs). Denmark and Sweden currenty use the term Sector Programme Support. The Word Bank views sectora approaches as a component of Programmatic Aid and has identified some of its instruments as most suitabe for use in the context of sectora approaches, such as sector investment programmes, maintenance oans / credits and adaptabe programme oans. The United Nations has adopted a UN Program Approach, which it terms as a muti-sector approach and which shares common vaues and orientations with the sectora approach. Whatever the term used for the sectora approach, they generay fa within the arger framework of a country strategy document such as the Word Bank s Poverty Reduction Strategy Papers (PRSPs), the United Nation s Deveopment Assistance Frameworks (UNDAFs), or the Asian Deveopment Bank s Country Assistance Pans (CAPs). Sectora approaches share the foowing characteristics: provision of assistance by donors to sectors (eg heath, education) in ine with the government s own sector strategy, expenditure framework and priorities, thus shifting ownership towards the government and enhancing coherence donor coordination; sectora approaches commony require muti-donor support. Donors aim to foster coordination through estabishing common funding arrangements, and joint panning, impementation, reporting and accounting arrangements with the government (ideay based on the government s own systems) in order to reduce the administrative burden on the government broad stakehoder participation in the process, incuding civi society and oca government, thus extending ownership to a broad range of actors beyond the government athough in practice genuine participation by these other actors is often sti ow variabe modes of assistance using various financia instruments (eg technica assistance; projects that support the government s strategy, often managed by the government itsef; or budget support, where money is injected into the government s own budget and earmarked for the sector a resuts-based aid management approach, with a particuar emphasis given to joint monitoring and evauation and a move away from rigid donor procedures and contros focusing on inputs rather than deivery of resuts a process-oriented approach because whie the expected outcomes are agreed at the outset it is recognised that the processes by which the outcomes are to be achieved cannot be pre-determined; pans need to be revised as time goes by in the ight of changing or unforeseen circumstances. Sectora approaches are in an eary stage of deveopment in many cases. Where they are adopted, not a donors in the country wi be invoved. It is unusua for sectora approaches to be adopted in countries suffering from widespread and protracted confict, but they have been adopted in post-confict settings and in countries affected by ocaised and regiona confict. They have proved popuar with some donors in fragie post-confict or transition settings (such as Rwanda and Mozambique), on the grounds that that they hep boster weak government capacity, encourage sustainabe institutions and reduce the burden on governments of disjointed donor activities. They have aso been adopted in countries subject to ocaised interna conficts (such as Ethiopia and Uganda), and in countries whose armed forces are invoved in externa or regiona conficts. In such contexts, the cose donor/government partnerships deveoped through sectora approaches can provide a vehice for promoting and infuencing governance reforms and poicy diaogue around issues such as miitary expenditure. BOX 1 An exampe of a sectora approach: Education in Uganda In 1996, the Ugandan government aunched the Universa Primary Education (UPE) initiative as part of its response to the serious chaenges of widespread poverty highighted in the country s Poverty Eradication Action Pan. The initiative invoves free education for up to four chidren per famiy. To impement the poicy, the Uganda Education Strategic Investment Programme (ESIP) was deveoped as a sectora approach. ESIP is supported by a group of donors, through budgetary support, with DFID acting as a secretariat. Other donors have provided earmarked sector support and technica assistance to the programme.

91 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter What are confict-sensitive sectora approaches? A confict-sensitive sectora approach is one that is deveoped and impemented so as to minimise possibe negative impacts and maximise positive impacts on the context and its dynamics, and vice-versa. This requires an adequate understanding of the context not ony in the deveopment, impementation and evauation of the sectora approach itsef but aso in deveoping the nationa strategic framework within which the sectora assistance is set, and the donor / government partnerships operating at nationa and sector eve. As aready noted, sectora approaches have been adopted in some post-confict settings and in situations of ocaised and regiona confict. But it is equay important to ensure sectora approaches are confict sensitive in situations of unstabe peace, where insensitive interventions can reinforce or exacerbate the potentia for vioent confict (eg resettement schemes which ater the ethnic baance of a region and the access of different groups to resources). Nor shoud confict sensitivity be restricted to the obvious sectors miitary, justice and poice; it needs to be integrated across a areas of activity, since deveopment assistance in any sector (eg infrastructure, education, heath, agricuture) can have an impact on the context. See Box 2, and the further exampes in Annex 1. BOX 2 Education and confict DFID has recenty undertaken a study ooking at education and confict, incuding the aspects of education that have the potentia to exacerbate confict or, if handed sensitivey, to address some of the underying grievances that cause confict. The study has pointed to the need (a) for methodoogies for assessing sector wide invovement in education from the perspective of confict and (b) for deveoping a consensus around indicators of the positive and negative roes of education in situations of confict. Many of the principes underying sectora approaches oca ownership, capacity-buiding, participation, incusiveness, accountabiity, coordination are aso among the key principes for confict-sensitive practice. Sectora approaches have the potentia to contribute positivey to the context if undertaken in a confict-sensitive manner. Tabe 1 sets out some of the associated opportunities and risks. TABLE 1 Opportunities and risks associated with sectora approaches, from the perspective of confict sensitivity Opportunities Risks Engagement Increased opportunities for donors and civi society to have a positive infuence on nationa deveopment strategies (eg via the PRSP process) and sectora strategies, incuding poicy diaogue on issues reated to confict issues and governance. Impact Increased opportunities for externa capacity buiding support for government and civi society in areas such as poicy anaysis, confict anaysis, budgetary processes, transparency and service deivery - a of which can contribute to structura stabiity. Increased opportunities for inking the nationa and oca eves, for exampe through strengthening the egitimacy of the centra government at ower government eves and with civi society. Donor support to a government that acks a credibe interna constituency of support may risk ending it undue egitimacy. There are imited options for donors shoud nationa governments undermine the partnership eg by acting in ways that fue confict or undermine human rights. Aso, suspension of aid can risk increased instabiity. Fungibiity; increased risk of diversion of funds for beigerent purposes; increased risk of corruption. Weak pubic sector capacity eg in the area of management, or more generay in a region within the country may ead to the use of parae impementation systems which by-pass government structures and undermine government capacity. Focus on the nationa government can ead to an over-emphasis on the capita city and an increasing disconnection with oca reaities. Sectora approaches can be counter-productive in terms of decentraisation processes and create differences and tensions between the oca and centra

92 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 governments, particuary where the benefits of assistance are not immediatey fet at the oca eves. Sustainabiity Increased opportunities for a ong-term perspective and support to reform processes inked to sectora approaches (particuary reated to governance) which have the potentia to increase structura stabiity (eg justice system reform, strengthening transparency in the ega framework for civi society participation). Participation Increased participation by civi society organisations in poicy and the poitica process, incuding a scaing up of oca participatory processes to a nationa poicy eve. This can hep to foster incusive governance and buid bridges between different interests, and provide a variety of perspectives on confict risks. Coordination Deveopment of consensus and joint understanding of confict issues and dynamics between different donors, as we as between donors and nationa governments. Enhanced coordination between donors and increased opportunities for the coherence of interventions around a nationa deveopment strategy. Donor pressure to disburse funds and insensitivity to poitica factors can ead to a situation where reform is pushed through too quicky, before the necessary preconditions have emerged. This may produce a backash when expected gains do not materiaise. Bady managed participation risks increasing tensions, particuary where civi society is sharpy divided aong the faut ines of a confict. Civi society may be weak and under-deveoped and therefore not in a position to pay an effective roe in sectora approaches, thus further undermining its position vis-à-vis the government. Risk that poicy and sector strategies coud appear donor driven, thus undermining the credibiity of, and increasing dissatisfaction with, the nationa government. Raising sensitive poitica issues within the framework of poicy diaogue with governments can present rea chaenges and ead to donor/ government tensions. The nationa focus of sectora approaches can make it harder to address regiona issues (incuding regiona confict dynamics) and the impacts of poicies and programmes on neighbouring states. Note: This is not an exhaustive ist and the issues covered wi differ according to the particuar context. 3. Seeking to achieve confict-sensitive sectora approaches 3.1 Overview Sectora approaches derive from strategic frameworks deveoped by nationa governments and donors at the macro eve. The strategic and sectora eves are interdependent and confict sensitivity needs to be integrated at both the nationa (macro-strategic) eve and at the sector eve. But note that the sequencing of activities at the different eves is unikey to be inear and may vary consideraby depending on the country circumstances. Confict sensitivity aso needs to be considered in reation to the partnership environment within which sectora approaches operate, again at both nationa and sector eves. Nor can confict-sensitive sectora approaches be achieved by the actions of one group in isoation; members of a concerned groups (nationa governments, donors, civi society, INGOs, impementing agencies) shoud contribute to the understanding of what a confict-sensitive approach requires, and a have a roe to pay in its impementation. 3.2 Stakehoder consutation Stakehoder consutation is a core principe of sectora approaches and shoud take pace at a stages. It is aso a core principe for a confict-sensitive approach. Consutation can bring to bear oca perspectives on the pans for the sector in a particuar region; ensure it is informed by oca reaities; highight any ikey sources of tension or insecurity (eg over resource aocation); and suggest approaches to managing that tension. In addition to providing information on key confict risks, the process of stakehoder invovement can pay an

93 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 5 important roe in confict sensitising the partnership environment by promoting incusive governance, reaching out to marginaised groups and encouraging further institutionaisation of stakehoder participation in government poicy making. In particuar, invoving a tiers of government (incuding oca government) is an important eement of deveoping accountabiity and securing oca ownership of and commitment to the strategy and impementation of a sectora approach. Confict-sensitive consutation requires an adequate understanding of the different actors and their goas, interests, capacities and reationships (as iustrated by the confict anaysis), as we as sensitivity to the causes of confict identified in the anaysis, such as marginaisation of certain groups, or inadequate participation of oca actors in centra decision-making. Undertaking a consutation exercise that excudes certain actors or gives too much weight to others can ead to increased tensions and skewed perspectives. Difficuties may incude a weak, fragmented or poarised civi society; ack of consensus on deveopment priorities; or oca government structures that ack resources and capacity to engage effectivey in sectora poicy making and impementation. A number of actions can be taken to promote confict-sensitive stakehoder engagement. These incude: drawing on information provided by the confict anaysis, in particuar information on actors. This can hep ensure that key groups are not overooked or marginaised and that a actors are engaged, incuding traditiona governance structures and the private sector taking advantage of the vauabe roe that donors and other externa actors can pay as critica observers of the participation process, with the abiity to raise concerns in their diaogue with government. They can aso faciitate the participation process (see Box 3) providing support to stakehoder consutation processes, and projects aimed at strengthening civi society groups and oca governance structures. BOX 3 European Commission support to civi society participation in Sudan The EU is supporting the deveopment of a Nationa Indicative Programme for Sudan. The European Centre for Deveopment Poicy Management has faciitated a process of awareness raising and mapping of non-state actors (civi society), at the request of and paid for by the European Commission and the Government of Sudan. This process of civi society engagement is taking pace within the context of an ongoing poitica diaogue and progressive normaisation of EU / Sudan reations. It is hoped that with further capacity buiding support, civi society wi be in a position to pay a roe in a future EU / Sudan country strategy and diaogue. A number of organisations speciaise in supporting diaogue and poicy advocacy mechanisms in confict and post-confict settings, using participatory action research methodoogies in order to map issues and actors with a view to informing poicy (see Box 4). Donors might want to consider supporting such initiatives. BOX 4 War Torn Societies Project The War Torn Societies Project s approach is based on a participatory action research (PAR) methodoogy adapted and deveoped by the director, Mattias Steife. The methodoogy invoves setting up core teams of oca peope to undertake research in their own post-confict societies, with a view to drawing up a 'baance sheet' or country note describing the state of the country, and a ist of priority rebuiding tasks that need to be tacked. The country note is not produced by researchers working in isoation, but is deveoped from the opinions and suggestions of many different individuas and groups, so beginning a process of interaction. In the project in Somaiand, for exampe, the team was based in a oca research organisation, the Somaiand Centre for Peace and Deveopment, and after five months of fiedwork in 1999 produced a country note, Sef-portrait of Somaiand. The team traveed widey, reaching peope in a regions and sectors. The project treats the participants as authorities, and aims to provide the neutra space necessary for frank discussions. 3.3 Confict sensitivity at the nationa eve The key eements where confict sensitivity needs to be introduced incude: nationay owned strategic deveopment frameworks, such as Poverty Reduction Strategy Papers (PRSPs) and Comprehensive Deveopment Frameworks. These frameworks outine the overa deveopment priorities for a country and inform the priority areas and actions needed within and across different sectors. They are deveoped by the government, ideay with broad consutation with a variety of stakehoders incuding civi society, and shoud be refected in government resource aocation frameworks, such as medium term expenditure frameworks country and regiona strategies deveoped by donors, which outine the type of reationship donors have with the government (incuding whether to move towards sectora approaches and cose government partnership); the overa donor strategy towards the country; the priority actions within and across sectors to support this strategy; and the overa budget. They are drawn up by the donors, again ideay in consutation

94 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 with a broad range of stakehoders incuding civi society, as we as with the government and each other the partnership environment at the nationa eve, incuding donor / government and donor / donor diaogue processes (eg donor coordination forums, poitica diaogue processes) and nationa stakehoder consutation processes (eg participation processes reated to the PRSP process) Strategic frameworks Introducing confict sensitivity into nationay owned strategic deveopment frameworks and donor strategies requires them to be informed by an understanding of the overa context (incuding economic, socia, poitica trends) and its impact on the deveopment process in the country (for exampe, the impact of confict on economic and socia structures). This can be derived from a confict anaysis at the nationa eve, preferaby undertaken jointy by donors and governments. The anaysis shoud identify the key issues, and estabish how actions within and across sectors can address them. The impications for resource aocations both government expenditure frameworks and donor budgets shoud aso be determined. Donors can use the anaysis in their assessment of the government s commitment to poverty reduction (eg via the nationay owned strategic deveopment framework), and in deciding on the nature of their partnership with the government (eg whether to move towards sectora approaches). Chapter 2 provides detaied guidance on confict anaysis. In addition to undertaking a separate confict anaysis at the nationa eve, it is aso important to ensure that the other assessment and anaytica frameworks used by donors and governments, such as poverty anaysis and governance assessments, give adequate consideration to confict issues (see Chapter 2, section 4) The partnership environment Deveoping a confict-sensitive partnership environment at the nationa eve invoves fostering a shared understanding by donors and governments of the confict issues affecting a country. It aso impies ensuring that this understanding is informed by and refects the perspectives of other actors, such as civi society and oca governments. Approaches to promote this enabing environment incude: donors and governments undertaking a joint participatory confict anaysis. This approach was recenty successfuy pioted in Nigeria (see Chapter 2 Box 11) raising confict issues in the course of poitica diaogue, to buid a consensus between government and donors on the key issues. The confict anaysis can hep to inform the content of this diaogue, and stakehoder participation in the diaogue can hep to ensure its incusivity addressing the issue of confict within strategic donor coordination frameworks and fora, such as UN-ed coordination exercises (eg the Common Country Assessment Framework (CCA) and the UN Deveopment Assistance Framework (UNDAF)). Donors can consider undertaking joint confict anayses which feed into strategy deveopment. This can aso increase their infuence with governments opening space for broad stakehoder invovement in nationa and donor strategic frameworks (eg via PRSP consutation processes), assessment processes (eg confict anayses) and poicy diaogue processes. See section 3.2 above. The above assumes some wiingness on the part of nationa governments, donors and civi society to consider issues of confict sensitivity. In practice, this wiingness is not aways there: groups within countries may have a vested interest in the status quo because they benefit from the current situation and its associated poitica, socia and economic dynamics; externa actors, such as donors, may be unwiing to address poiticay sensitive issues. But this shoud not deter individuas and organisations from advocating the adoption of confict-sensitive sectora approaches. Tabe 2 highights some of the key chaenges, and suggests some possibe approaches to overcome them. TABLE 2 Chaenges Chaenges Priorities Whist donors may wish to deveop a confict sensitive country strategy, nationa governments may not be wiing to recognise confict as an issue in their strategic deveopment frameworks. Possibe approaches to overcoming chaenges The commitments to confict prevention and management made by many governments within frameworks such as NEPAD and the Cotonou Agreement can provide a powerfu argument from donors and other stakehoders for the incusion of these issues in the country s strategic deveopment framework. By presenting issues in terms of governance and socia / poitica issues, governments and donors can hep avoid some of the sensitivities that can occur when confict is discussed openy / expicity.

95 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 7 Lack of capacity Governments may ack the capacity to undertake confict anaysis exercises. Sensitivities Raising confict issues in government / donor diaogue can be highy sensitive, and deveoping a shared understanding of the issues between different stakehoders may be difficut. Findings ignored The findings of confict anaysis exercises may not be refected in nationay owned strategic deveopment frameworks and donor strategies. Lack of donor coherence Donor effectiveness needs common perspectives between donors, but donors may have different poicy positions or perspectives towards given situations and may differ in the extent to which they are prepared to discuss sensitive issues with the government. An abundance of anayses Donors and government may be overwhemed by the number of different approaches and assessment frameworks they are faced with gender anayses, environmenta anayses, governance assessments etc. Donors can provide capacity buiding support to governments and associated research organisations (see Chapter 5). Again, presenting issues in terms of governance and socia / poitica issues can hep get round some of the sensitivities. A joint donor / government participatory confict assessment is more ikey to buid a shared understanding of the confict, and avoids the poitica risks of undertaking the assessment uniateray. The process of confict anaysis needs to be supported by both government and donor agencies from the highest eve, and mainstreamed into their activities. (See Chapter 2 on confict anaysis, and the specific exampe of Nigeria in Chapter 2 Box 11) Common donor perspectives can be fostered by joint donor macro-confict anaysis, as we as by addressing the issue of confict within strategic donor coordination frameworks and fora, with a view to buiding consensus around key issues and providing a framework for addressing differences. One possibe approach wi be to ensure that confict is adequatey considered within the other assessment frameworks (see Chapter 2 section 4). 3.4 Confict sensitivity at the sector eve The government s nationay owned strategic deveopment frameworks wi set out the key deveopment priorities, and the priority actions needed within and across different sectors. Discussions at the nationa eve wi often aso have provided a budgetary aocation for each sector. The donors' strategies wi have outined their priority areas for deveopment assistance. If a confict-sensitive approach has been appied at the nationa eve, and provided that actions at the sector eve refect this, then there shoud be a good basis for integrating confict sensitivity at the sector eve, at a stages assessment and panning, impementation, and monitoring and evauation. The macro confict assessment wi, however, need to be compemented by a deeper anaysis of the inkages between the specific sector (eg heath, education, agricuture) and the context Assessment and panning stage Key steps at this stage incude: by donors for support (donors may assist in the process of strategy deveopment) the deveopment of indicators or benchmarks against which the impact of the intervention wi be monitored and evauated. Confict-sensitive strategic assessments undertaken at the nationa eve wi have heped identify priority areas for addressing confict issues within and across sectors, but in order to integrate confict sensitivity into the assessment and panning of a sectora approach it wi be important to consider compementing the macro confict anaysis with a sector specific confict anaysis of the inkages between the specific sector (eg heath, education, agricuture) and the context. In particuar the sector specific anaysis wi address the different eves of confict, particuary oca eve dynamics that wi impact on sector activities, and the reationship between those various eves (oca, sector, nationa). (See Box 5.) the deveopment and appraisa of sector strategies, work pans and budgetary provision. These are usuay deveoped by nationa governments and invove consutation with stakehoders, before being considered

96 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 BOX 5 Exampes of inkages between sectors and context Heath & education (service provision) Inadequate educationa and heath provision for certain parts of the popuation ead to insecurity and reduced mobiity (confict profie). Uneven distribution of heath and education service provision and marginaisation of certain groups fues grievances (confict causes). Inadequate heath and educationa provision increases confict risk due to youth dissatisfaction with ack of opportunity (confict dynamics). Natura resource management (and, water, agricuture) Environmenta damage eading to natura resource management probems (confict profie). Unequa access to resources such as and/water fueing grievances (confict causes). Environmenta damage fueing confict due to competition over scarce resources (confict dynamics) Appying the sector specific confict anaysis to the deveopment and appraisa of the sector strategy and budgetary aocation wi revove around two sets of key questions: how do the sector strategy and budgetary aocation reate to the understanding of the context and key priorities identified through the confict anaysis? Do/can they incude strategies to address confict reated issues? what adjustments are needed to address possibe negative impacts and possibe opportunities (see Tabe 1)? What actions are required within other sectors? Reating the sector strategy to the confict anaysis can be done using the anaysis framework provided by the confict triange outined in Chapter 2. Tabe 3 provides exampes of questions that need to be asked to determine how the sector strategy can address the issues raised in the anaysis (the actua questions wi differ according to the specific context). TABLE 3 Exampes of key questions to inform sector strategies Key eements of confict anaysis Questions Profie Does the strategy take into consideration specific confict-prone / affected areas? Is it adapted to different geographica regions in the country? Does it consider the ocation of natura resources or important ines of communications? How is the strategy informed by the history of confict (eg previous experience of tensions escaating into vioent confict due to and poicies or reform processes / poicies inked to sector interventions)? Context Do the strategy and budget address the ong-term structura causes of vioent confict (eg marginaisation of certain groups from the poitica process and access to services; educationa bias in terms of anguage / cuture; corruption reated to certain sectors which undermines confidence in the state; unequa access to resources; food insecurity; weak governance structures)? Do they address the acceerating or proonging factors aggravating confict risks? Do they seek to maximise factors contributing to peace? Eg do reform processes inked to sector strategies seek to address governance and representation issues? Does the strategy support the deveopment of a nascent civi society? Does it seek to capitaise on regiona integration opportunities on issues that address regiona tensions (eg over resources)? Actors Dynamics How does the strategy reate to key actors and their goas, reationships, capacities? Does it empower those working towards peacefu soutions and oca capacities for peace? Does it chaenge vested interests (eg in government)? Does it increase or decrease opportunities for communication between different groups? Does the strategy take into consideration confict dynamics? Can it adapt to different scenarios and confict trends? For instance, does it take into consideration specific reconstruction activities which might be needed foowing a oca peace agreement? Can it serve to promote positive trends (eg by providing quick peace-dividends / incentives in the event of positive deveopments)? Note: see Chapter 2 section 2 for a detaied expanation of profie, causes, actors and dynamics.

97 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 9 Having ascertained the extent to which the strategy and budgetary aocation aim to target confict issues, a number of actions / strategies can be deveoped to address outstanding issues. Exampes wi vary according to the context, but incude: deveoping specific strategies for deivering support to sectors in confict-affected or potentiay confict-affected regions considering budget pans that address issues such as equity of resource aocation between regions, and inter-group disparities deveoping governance reform programmes reated to the sector (eg to increase participation of certain groups) supporting existing or additiona oca eve peace-buiding or confict prevention projects reated to the sector (eg oca peace education projects) integrating an anti-corruption strategy into the sector strategy ensuring consistency and coordination between the strategy and other areas of intervention and ongoing oca processes eg humanitarian assistance, oca peacebuiding activities, oca NGO assistance ensuring that the sector strategy addresses the needs of particuary disadvantaged / marginaised groups baancing approaches that address short-term needs and ong-term structura issues. The deveopment of actions and strategies wi invove considering the inkages between sectors, as actions wi most ikey be required in other sectors to ensure the confict sensitivity of the strategy. For exampe, actions in the transport sector, such as the buiding of a new transport corridor, might increase opportunities for arms or drugs trafficking and woud therefore need to be inked to actions within the security sector to enhance security for the region. Furthermore, making a difference in one sector, such as transport and housing, without improvements in the provision of other basic services, can fue new grievances. The process wi aso require consideration of strategies for addressing confict issues in key crosscutting areas, such as governance. For exampe, governance probems may be at the root of tensions between groups over unequa access to resources; or corruption (eg in the poice) may fue a variety of grievances and undermine state credibiity. Indicators and benchmarks need to be deveoped aongside the sector strategy, to gauge the success or impact of the impementation of the strategy and the intervention, and to hep determine what adjustments, if any, need to be made to secure the panned outputs. Confict sensitivity requires indicators which gauge the interaction between the intervention and the context and vice versa (see Chapter 2 section 3 for more information). Indicators wi necessariy vary according to the intervention in question and the context. Box 6 provides some exampes reated to the education sector. BOX 6 Possibe confict anaysis indicators for the education sector Profie Marginaisation of group x in region y from poitica process and access to basic services; ack of access to education, due to insecurity in region. numbers of group x attending primary schoo improvements in the quaity of educationa provision in region y. numbers of group x invoved in schoo users groups (eg PTAs) safe access to education by group x in region y Causes of confict / actors Educationa bias in curricuum eading to perceived marginaisation of group x; opportunities for improved reations between groups x & z through peace education in curricuum. increase / decrease in incidence of teaching of anguage x in schoos increased interaction between groups x and z adjustment of educationa bias in curricuum Impementation stage Key steps at this stage incude: deveopment of structures for donor coordination and donor / government management decisions on the instruments (mechanisms) for impementation impementation monitoring Management structures and partnership issues Buiding the requisite shared understanding at sector eve invoves: addressing confict sensitivity within donor coordination frameworks and other processes. Discussions shoud be directy inked to the nationa eve discussions to ensure coherence and consistency (particuar attention to this is required where personne work at ony one of the sector or nationa eves). Undertaking a joint confict anaysis can assist the process of deveoping common perspectives. addressing confict sensitivity within donor / government management structures. These structures provide the key interface between donors and governments and the framework within which strategies are deveoped, impementation is monitored, and reviews panned. It is therefore vita that confict sensitivity is considered within the framework of these

98 10 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 structures. A participatory joint donor / government confict assessment (incuding the deeper anaysis for the sector) is again a good way of fostering agreement around key confict issues and actions. Financia instruments Tabe 4 describes the three most common financia instruments avaiabe for donor support to sectora approaches. The right choice of instrument is very important, and must take account of the confict anaysis. Making the most appropriate choice invoves a process of anticipating the impact of different instruments, evauating the benefits against the risks and deveoping strategies to minimise potentia negative impacts. The information gained through the confict anaysis is ceary reevant to this process. TABLE 4 Financia instruments used in sectora approaches Sectora support Technica assistance Project funding Sector earmarked support (programme funding) Genera budgetary support (donor pooed and sector programme funding) Technica Assistance (TA) is the transfer, adaptation, mobiisation and utiisation of services, skis, knowedge and technoogy, through the provision of personne, training, equipment, consutancies, study visits and seminars. Donor-funded activities support the government s sector poicy framework, but are managed as projects usuay using government systems (reporting / contracting) but sometimes reying on donor management systems Coordinated aid from a number of donors is disbursed and accounted for through government systems and earmarked to hep finance an agreed poicy and sector expenditure pan. Note: This tabe 1 is necessariy styised and a number of variations wi occur depending on country circumstances. Different approaches may be used simutaneousy as sectora approaches are usuay a hybrid of funding forms. Tabe 5 beow gives exampes of reevant questions for genera budgetary support, as this funding instrument is, from a confict perspective, the most risky. Other instruments have their own chaenges and raise other questions. For exampe in the case of project funding, a possibe impact of government management might be increased opportunities for corruption and domination by eite interests, whie management by donors might undermine government capacity and egitimacy. TABLE 5 Anticipating impacts of genera or targeted budgetary support on the context Key eements of confict anaysis Profie Causes Exampes of questions for consideration in anticipating impacts Is budgetary support the most appropriate choice for a geographica areas in a country? Do the instruments of impementation need to be adopted for different regions, particuary confict-affected regions where government capacity to deiver may be weaker? Is there a risk that budgetary support might give externa credibiity to a government that acks interna egitimacy? If government corruption is a cause of confict, what are the risks of budgetary support exacerbating this probem? What needs to be done to minimise this risk? Wi the use of budgetary support serve to strengthen weak government structures and boster reform programmes? Are government structures strong enough to manage fows of funding? Does the provision of budgetary support through the centra government risk an overemphasis on the capita city and favoured regions and negect of marginaized areas? If so what can be done to mitigate this?

99 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 11 Actors If the nationa government / miitary is a key confict actor, is there a ikeihood of diversion of funds to the miitary or eites? Are there risks that the nature and pace of the reform processes might undermine certain vested interests and increase confict risks? Dynamics Are poitica issues, such as human rights abuses, ikey to worsen, thus increasing the ikeihood of a suspension of budgetary assistance, which in turn may exacerbate instabiity? Is budgetary support a reaistic choice, in terms of a window of opportunity for providing macro-economic stabiity to a weak, but egitimate post-confict government? A number of strategies may be deveoped in order to minimise potentia negative impacts, incuding: integrating anti-corruption activities into the sector strategy integrating a component of institutiona capacity buiding for weak governance structures to ensure that they can manage funds and impementation processes ensuring adequate representation / invovement of oca government and other stakehoders in the panning and impementation of the sector strategy (see section on stakehoder invovement beow) considering budget pans that address issues such as equity of resource aocation between regions and inter-group disparities supporting mechanisms to ensure the transparency of budgetary aocations and miitary spending (eg miitary spending reviews). Budgetary support shoud not be the chosen option if the risks are too high. The impementation process It is important not ony that the overa strategy and choice of instruments of support are sensitive to confict, but aso that the process of impemention is undertaken in a confict-sensitive way. Impementation invoves a range of different actors, which wi vary depending on the instrument used (see Tabe 4). These actors incude impementing agencies (such as INGOs and government contractors), different tiers and agencies of government, oca community users' groups, etc. It wi aso require the active invovement of the government / donor management structures (see Management structures and partnership issues in section above). These actors need to be sensitive to the impact of their actions on the context and to be aware of the principes of confict sensitivity (see Introduction). Governments and donors responsibe for overseeing the deveopment and impementation of the sectora approach can take steps to ensure that these actors are adopting a confict-sensitive approach to their impementation process. They need to make impementing actors aware of the findings of the confict anaysis and key confict issues (preferaby invoving them in the anaysis process) and to deveop systems to ensure that they are reguary monitoring the impact of activities on confict, making adjustments and feeding back findings that can be incorporated into the overa anaysis (see section beow). Where contractors and impementing agencies are used, a confict-sensitive approach shoud be made a condition of the contract. Chapter 3 Modue 3 provides further guidance on how impementing actors can take confict sensitivity on board Monitoring and evauation Section describes the deveopment of indicators and benchmarks in the sector strategy. Indicators shoud aso be used to measure the reationship between individua activities or projects undertaken within the sectora framework. The information gathered can then feed into the overa review process (see beow). Reviews are usuay undertaken by joint donor / government teams at reguar intervas. The findings feed into a process of adjustment of the strategy and the impementation process. From a confict-sensitive perspective, it is important to ensure, in between these reviews, an ongoing monitoring of the impementation and impact of the activities as they reate to confict. Donors and governments may need to deveop information systems and mechanisms for gathering this information from the wide range of actors invoved in the impementation process (see section above). The review process shoud be informed by: the information gathered in the ongoing monitoring exercise broad stakehoder consutation a process of updating the confict anaysis to aow for a comparison of the situation at the beginning of the activity and at the moment of the review. 4. Endnotes 1 Adapted from CIDA: Panning and Impementation of SWAPs: An overview, Issues Paper. Ottawa: Canadian Internationa Deveopment Agency, 2000.

100 12 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 Annex 1 ANNEX 1 Exampes of inkages between structura dimensions of tension / open confict and deveopment assistance Structura dimension of tension or confict Feature of atent or open confict 2 Exampes of negative impacts of deveopment assistance Security Poitica Economic Socia Increased arms spending State is captured or dominated by particuar interest groups or ethnicities and may be characterised by patronage poitics and corruption. Lack of citizen engagement in poitica process and pubic poicy Poory managed governance reforms Uneven deveopment process contributing to creation of discontented groups Land / agricutura poicy Liberaisation and privatisation programmes Histories and discourse of vioence Fungibiity of deveopment assistance frees up finance for increased government spending on arms or the miitary. A cose / uncritica donor / state reationship increases the externa egitimacy of a regime, and interna disiusionment and disaffection with the state. Conversey, sudden criticism of a regime by deveopment donors (eg regarding ack of adequate interna audit reated to use of budgetary support) fues grievances and feeds interna tensions. Poory monitored and managed support via government budgets or tenders eads to increased eves of corruption. Inequitabe sector poicies deveoped with inadequate consutation, or consutation dominated by particuar interests or groups (eg an education poicy which favours a particuar anguage group; a decentraisation process which fais to address inequaities and marginaisation of excuded groups) Assistance to sectors is uneveny distributed reinforcing differences (eg geographicay or between groups). Withdrawa or downscaing of assistance (across a range of sectors) to a particuar area creates a vacuum which benefits beigerent groups. Poor natura resource management eads to scarcity, resource competition and confict. Resettement schemes ater the ethnic baance of a region feeding ethnic tensions. Can serve eite interests and generate confict Education systems emphasise ethnic or reigious boundaries; anguage used as a too to excude or mobiise groups

101 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 4 13 Annex 2 Bibiography and further reading Sectora approaches Brown, A., M. Foster, A. Norton and F. Naschod, The Status of Sector Wide Approaches, Centre for Aid and Pubic Expenditure (CAPE) Working Paper 142. London: Overseas Deveopment Institute, Canada. Panning and Impementation of SWAPs: An overview, Issues Paper. Ottawa: Canadian Internationa Deveopment Agency, Netherands, The Sectora Approach. The Hague: Ministry of Foreign Affairs, Sectora Approach Support Group, Ridde, A., Synthesis Report of Deveopment Agency Poicies and Perspectives on Programme-Based Approaches. Ottawa, Canada: Learning Network on Programme Based Approaches, Linkages between deveopment assistance and confict Goodhand J., A Synthesis Report: Kyrgyzstan, Modova, Nepa and Sri Lanka, Confict Assessments. London: The Confict Security and Deveopment Group, Centre for Defence Studies, Goodhand, J., Vioent Confict, Poverty and Chronic Poverty, Chronic Poverty Research Centre Working Paper 6. Manchester, UK: Chronic Poverty Research Centre, Nico, A., Y. Arsano, and J. Raisin, EU Poicies and the Risk of Vioent Confict in Ethiopia s Awash Vaey. London: Saferword, Uvin, P., The Infuence of Aid in Situations of Vioent Confict: A synthesis and a commentary on the essons earned from case studies on the imits and scope for the use of deveopment assistance incentives and disincentives for infuencing confict situations, Confict Prevention and Deveopment Co-operation Papers. Paris: Organisation for Economic Co-operation and Deveopment, Deveopment Assistance Committee Informa Task Force on Confict, Peace and Deveopment Co-operation, Entry points for confict-sensitive practice da Camara, S., S.C. Gomes, T. Lehtinen, A. Sherriff and J. Bossuyt, The EU s Response to Confict Affected Countries: Operationa guidance for the Impementation of the Cotonou Agreement, European Centre for Deveopment Poicy Management Discussion Paper 31. Maastrict: European Centre for Deveopment Poicy Management, Foster, M. and J. Leavy, The Choice of Financia Aid Instruments, Centre for Aid and Pubic Expenditure (CAPE) Working Paper 158. London: Overseas Deveopment Institute, McLean Hiker, L., A. Evans and A. Norton, Strategic Framework for Engagement in PRSs in Confict Affected Countries: Attachment to briefing note 6. London: Overseas Deveopment Institute, undated.

102 CHAPTER 5 Institutiona capacity buiding for confict sensitivity Purpose of chapter This chapter expains how to begin the process of mainstreaming confict sensitivity into an organisation in a systematic way using a six-step framework. Who shoud read it Practitioners working in governments, civi society (oca and internationa) and donor organisations. But first they need a good understanding of the key aspects of confict sensitivity as outined in the earier parts of this Resource Pack. Why they shoud read it Because a practitioners at a eves are both impacted by, and can impact, the deveopment of their institution s capacity for confict sensitivity. 1. Introduction 1.1 A definition Institutiona capacity for confict sensitivity This means the abiity of an organisation to deveop and use the sum of its human and organisationa capita to minimise negative and maximise positive impacts on the confict dynamics of the environment(s) where it works. Human capita incudes staff and partner skis, knowedge and experience. Organisationa capita incudes departments, structures, financia resources, organisationa cuture and earning. Contents 1. Introduction 2. Assessing institutiona capacity for confict sensitivity 3. The importance of connectivity 4. Refecting on experience 5. Opportunities and chaenges 6. Pan of action 7. Monitor and evauate resuts 8. Endnotes Annex 1: Institutiona framework for mainstreaming confict sensitivity Annex 2: Resources and training faciities Annex 3: Bibiography 1.2 Why shoud an organisation want to be confict sensitive? Essentiay because it wi increase the effectiveness of their programming, by minimising the risks to actors invoved and mitigating the risk of occurrence or escaation of vioent confict. Other reasons might incude: interna and externa assessments or reports showing that intervention in confict areas caused harm and have not been maximising possibiities to impact positivey inkages demonstrated between increased confict sensitivity and more effective humanitarian reief, human rights, poverty reduction, and peacebuiding programming harmonisation of programmes with partnership agreements (eg NEPAD, ACP-EU Partnership within the Cotonou Agreement) and internationa commitments (eg Miennium Deveopment Goas, Responsibiity to Protect).

103 2 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter Background TABLE 1 The What and How of confict sensitivity What to do How to do it Understand the institutiona context Carry out an institutiona anaysis Understand the interaction between the institutiona context and the capacity buiding needs Use this understanding to address weaknesses and buid on strengths Link institutiona capacity buiding to the institutiona anaysis Pan, impement, monitor and evauate confict-sensitive capacity buiding There are some very rea institutiona chaenges that need to be addressed, even in the most capabe organisations, if confict sensitivity is to become a reaity in terms of organisationa strategy and operationa practice. Athough many organisations have made quite considerabe progress in recent years in promoting good practices in confict and confict-prone areas, and donors, nationa governments, INGOs and oca civi society organisations have deveoped and adapted many aspects of their own institutiona capacities, particuary since the mid-1990s, they a have some way to go before becoming genuiney confict sensitive. Even those that have made significant progress acknowedge that new chaenges arise daiy, and that these chaenges require the deveopment of appropriate institutiona responses. Some of these chaenges are recurrent and common to organisations working in highy fuid contexts where, for exampe, there may be an absence of effective and / or egitimate partner organisations, or where the situation is so insecure and voatie that institutiona deveopment is seen as impossibe. Indeed, many of the factors that negativey impact on an organisation s capacity for mainstreaming confict sensitivity, such as ack of institutiona commitment, high staff turnover, ack of institutiona memory, and weak anaytica capacity, are inked to both difficut operating environments and funding structures that emphasise acting above thinking. There are, however, ways to ook systematicay at institutiona chaenges, to earn how others have attempted to respond to them, and aso to prioritise key areas of action. Again, there are often considerabe interna and externa chaenges that must be overcome to effect change. At times it is necessary to gain some distance from one s working environment and one s own pace in it in order to fuy understand a aspects of the chaenges and opportunities that exist. Understanding institutiona dynamics, connections and disconnections is particuary important when attempting to improve an organisation s confict sensitivity. Increasing institutiona capacity for confict sensitivity preferaby through mainstreaming across a programme areas heps organisations better to manage their reationship with a voatie context, and improves the quaity of their work. Tabe 1 in Chapter 1 suggests a framework for impementing a confict-sensitive approach. Tabe 1 above suggests a simiar approach to mainstreaming confict sensitivity within an organisation. BOX 1 Organisationa capacity assessment A consutant undertook an assessment for CARE Internationa of existing organisationa strengths and capacities reevant to the successfu mainstreaming of confict sensitivity in the organisation. The main purpose of the review was to carify CARE s stance and roe(s) reative to confict sensitivity and peacebuiding, and to make recommendations on how to strengthen its capacity to support country office operations in confict-affected areas. Staff in the fied and headquarters, as we as other organisations, were consuted. One of the key findings was that organisationa cuture can be a key constraint; many CARE fied staff fet overwhemed by the ro-out of many different initiatives. It was therefore seen as critica that confict sensitivity shoud not be viewed as yet another initiative, but rather that CARE shoud deveop capacity and competence in an incrementa manner at different eves, without compromising its traditiona core strengths; and shoud ensure that confict-reated work remained consistent with CARE s vision and mission. It was recommended that the process be supported through foca points at various eves of CARE rather than by creating a separate confict transformation and peacebuiding unit. A key priority, given the feeing of initiative overoad, was for the process to remain demand and country office driven, whie modesty increasing capacity. Confict sensitivity is not an easy add-on, or something that can be acquired by undertaking one or two specific and discrete peacebuiding projects. It means integrating the

104 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 3 appropriate attitudes, approaches, toos and expertise into an organisation s cuture, systems, processes and work. This cannot be brought about overnight; it wi take time and needs to be based on an understanding of the institutiona context and in particuar the capacity, and the imitations, of the organisation when it comes to mainstreaming confict sensitivity. For exampe there may be reasons why, initiay, a minimaist approach may work better than a fu-bown roout across the organisation see Box 1 above. Tabe 2 ists what are ikey to be the essentia prerequisites for deveoping a sustainabe capacity for confict sensitivity. TABLE 2 Five essentia prerequisites A. Institutiona commitment This is indispensabe to making confict sensitivity a reaity; without support from the top, organisationa change wi not happen. If an organisation s eadership is not activey and enthusiasticay supportive of confict-sensitive approaches, there may nevertheess be scope to pave the way for incrementa organisationa change if some key individuas and / or departments of the organisation are supportive. B. Wiingness to make changes in organisationa cuture and institutiona structures Such changes are ikey to be needed if a confict-sensitive approach is to take hod. It may be that a fu-bown ro-out is not feasibe, and indeed many organisations wi recognise the initiative fatigue iustrated in Box 1. But most organisations wi have offices, teams and / or individuas who are open to earning, risk-taking and sef-refection incuding on confict and peace issues and who may be abe to act as drivers of change. C. Support for capacity deveopment Needed to keep and buid momentum as a process of change in organisationa cuture and institutiona structures starts to occur. Whie many organisations do not have in-house staff deveopment programmes, mainstreaming confict sensitivity requires at a minimum providing space and encouragement for staff to pursue and share their own reated research and earning. D. Conducive externa reationships Needed both in the impementing area and outside it. For exampe, funding parameters that emphasise output over process, or programme impementation over onger-term capacity deveopment, wi make it difficut for organisations to fund confict-sensitive programmes and / or invest in organisationa capacity buiding. In addition, effectivey mainstreaming confict sensitivity requires at a minimum the wiingness of partner organisations to engage in some eve of joint review and mutua improvement of practices. E. Accountabiity mechanisms Needed to underpin and reward staff and teams who incorporate confict sensitivity in their daiy practice. Whie organisations do not need to have a fuy deveoped accountabiity framework to begin impementing confict sensitivity, they do, at a minimum, need measures on mutipe eves of the organisation that encourage earning and acting on earning from past and ongoing experiences. Buiding on the above five key aspects, this chapter offers a six-step framework for starting the process of mainstreaming confict sensitivity within an organisation, incuding deciding whether and where a minimaist or a more comprehensive approach, or something in between, is most appropriate. The framework wi hep you to understand the strengths and weaknesses of your institution in reation to confict-sensitive poicy and practice, and to think about how to promote and support the deveopment of institutiona capacity for confict sensitivity The six steps fit within the arger framework of confict sensitivity, and can be seen as a process for gaining a fuer understanding of the institutiona context in which you operate, understanding the interaction between the institutiona capacity buiding and the institutiona anaysis, and finay acting on that understanding. Tabe 3 brings together the six steps and the overa approach suggested in Tabe 1.

105 4 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 TABLE 3 Six steps Framework Step Question Understand the institutiona context in which you operate Understand the interaction between institutiona capacity buiding and the institutiona anaysis Step 1: Assess your organisation s institutiona capacity for confict sensitivity Step 2: Assess how the different institutiona aspects (ie A to E in Tabe 2) connect What is the current institutiona context? What is the reationship between the different institutiona eements? Act on the understanding Step 3: Refect on one s own and others experiences Step 4: Identify key opportunities and chaenges Step 5: Prioritise, deveop and impement a pan of action Step 6: Monitor and evauate resuts and review pan of action What experiences can we earn from? What opportunities exist and why do existing chaenges exist (and persist)? Based on what we now know, how do we proceed? What have we earned so far and how can we improve? 2. Assessing institutiona capacity for confict sensitivity Step 1: Assess your organisation s institutiona capacity for confict sensitivity, using the matrix in Annex 1. There are various aspects of the make-up of any organisation (whether it be a government, donor, INGO or oca NGO) that wi impact on its abiity to behave in a confict-sensitive manner. Grouping these aspects under the five key headings in Tabe 2 wi hep to deveop an understanding of the existing capacity and opportunities for confict sensitivity. The matrix in Annex 1 provides tangibe exampes of a the aspects detaied beow. A. Institutiona wi and commitment A organisations have institutiona drivers, both interna and externa, that contribute to setting priorities and focussing resources. Institutiona wi is reay about how interested the organisation is in a topic and what priority it gives to it. Confict issues or reated factors such as quaity and impact assessment may be very high on the institutiona agenda and have a ot of institutiona commitment; or may be quite ow on the agenda with itte commitment. Questions to ask to assess the degree of commitment might incude: is there an interna poicy statement on the issue (or a cosey reated issue); for exampe a statement on Improving practice in confict areas (or equivaent)? are there dedicated personne assigned to furthering the mainstreaming of the issue, eg a confict adviser in the Humanitarian Department of a arge INGO? is the issue high on the organisationa agenda, eg is it reguary discussed in staff and / or management meetings? B. Organisationa cuture and institutiona structures The organisationa cuture means the attitudes and structures that permeate the agency. The type of organisationa cuture has impications for an organisation's capacity to mainstreaming confict sensitivity. For exampe, some organisations have very hierarchica structures whie others are highy decentraised: the factors which hep or hinder mainstreaming wi be different in each case. Another exampe is the organisation with a highy ora rather than written tradition: this may impair organisationa earning, especiay if staff turnover is high, thus making mainstreaming more difficut. Where there are unhepfu features in the cuture, you need to assess how important it is to change them, and to ask whether there is the wi to change.

106 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 5 C. Capacity deveopment Where sufficient institutiona commitment exists to mainstream confict sensitivity, incuding a commitment to invest in change in organisationa cuture and structures, deveoping staff skis and knowedge is important to sustaining and deepening the organisationa momentum. Whereas technica service-deivery skis have traditionay been prioritised in deveopment, and particuary in reief programmes, a stronger emphasis on anaytica skis and context knowedge is necessary in order to mainstream confict sensitivity. These incude confict transformation and peacebuiding skis, but aso: reationship-buiding skis process and anaytica understanding atera thinking appied socia science knowedge (socio-poitica / poitica-economic / anthropoogica) knowedge of the geographica context and the issues pertaining to it cutura sensitivity. D. Externa reationships The impact of organisations on the context is cosey inked to that of their partners and other organisations that either share operationa space or can directy or indirecty impact upon it. An organisation s abiity to be confict sensitive is aso directy infuenced by the externa environment, incuding the funding and poicy parameters within which they function. Assessing institutiona capacity for confict sensitivity and taking steps to buid capacity therefore needs to take account of the confict-sensitive capacities of the organisation s externa partners and others they share operationa space with, incuding impementing partners, funding agencies and poitica actors. E. Accountabiity Suitabe accountabiity systems to manage the organisationa mainstreaming process are essentia. Poicy guideines, training, appointment of dedicated confict advisers, etcetera, need to be compemented by cear and we thought-out accountabiity systems that provide appropriate rewards and disincentives to encourage staff to consider their tasks through a confict-sensitive ens and to pan, impement, monitor and evauate their actions and programmes in those terms. Finay and most importanty institutiona capacity must be deveoped to ensure accountabiity for the impact of action (and inaction) on the communities at which interventions are targeted. 2.1 Understanding the motivation and interest that guides the assessment and the associated resources Before assessing the institutiona capacity for confict sensitivity within an organisation (or any unit or department) there shoud be a frank understanding of the motivation and interest that guides the assessment and of the resources (human and financia) that are avaiabe to undertake it. Individua motivation shoud not be confused with the organisation s motivation, interest and resources. Individuas need to understand the motivation that wi either support or undermine their organisation s abiity to mainstream confict sensitivity. Motivation, interest and resources wi vary significanty from individua to individua, agency to agency, experience to experience, and can stem from many different persona, semi-forma or forma sources. Some exampes are given in Tabe 4. TABLE 4 Exampes of motivation / interest Type of motivation / interest Persona Semi-forma Definition A motivation or interest primariy stemming from an individua commitment to confict sensitivity A motivation or interest stemming from an informa institutiona desire to improve confict sensitivity Exampe An individua attends an externa course in confict anaysis and sees its importance and reevance to her work. She reaises that without the right institutiona capacities her abiity to impement programmes in a confict-sensitive manner is severey imited. Athough hoding a reativey ow position in a arge bureaucracy she wants to see how they can promote confict-sensitive practice in her organisation. A department within the agency has become increasingy concerned about the possibe negative impact of their work on confict dynamics. The Head of Department has caed in a midde managers for a workshop about how the organisation coud do better in responding to confict. They want to have a framework for this workshop.

107 6 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 Type of motivation / interest Forma Definition A motivation or interest arising from a forma institutiona desire to improve confict sensitivity Exampe After some mixed experiences in confict areas, concerns expressed by oca stakehoders, and consistent bottom-up pressure from staff ocated in confict regions, senior management has instigated an institution-wide refection process to define better practice in pursuing their core mandate in confict areas. They have asked a group of individuas in the Quaity and Evauation Unit to deveop a framework to anayse the institutiona chaenges invoved. The eve and depth of the anaysis wi depend not ony on the motivation which guides it, but aso on the resources (human, time and financia) that are avaiabe. Investing the necessary amount of resources is essentia to the quaity of the anaysis (and subsequent pan of action and impact), but it is important to be reaistic about the resource constraints the organisation may be facing. 2.2 Depth and eve of anaysis Depending on the circumstances, the six-step framework can be used either as a basis for deep anaysis to feed into a onger-term institutiona refection process, or for a quick scan. The framework can be used and adapted by an individua or a group of individuas. It is best used in a participatory fashion, athough it can aso be used for desk-based research. Exampes of how the framework coud be used: the director of a Nationa Government Office of Reconciiation / Confict Prevention uses it to frame an in-depth SWOT anaysis (strengths, weaknesses, opportunities and threats) of the entire government. This coud take severa weeks and invove arge numbers of personne and externa speciaist consutants an officia charged with mainstreaming confict issues within a donor agency uses it to assess progress for a report and action pan for the director an INGO regiona technica adviser for peacebuiding tasked with improving impact in confict countries uses it to conduct a two-day workshop with nationa technica advisers a nationa NGO officia running a micro-credit programme in a confict area uses it to focus on assessing the institutiona chaenges and opportunities for promoting confict sensitivity through an hour-ong discussion with key staff and eaders of community based organisations. The depth of the anaysis, on the other hand, wi be determined by the capacity of the individua or group and of the institution in which they work. 3. The importance of connectivity Step 2: How, if at a, do the different eements of the organisation s capacity (A E in Tabe 2) connect? Some aspects of confict-sensitive capacity may be we deveoped in (eg institutiona commitment) and others (eg organisationa cuture) ess we deveoped. It is important to understand how these different aspects connect. The experience of organisations seeking to become confict sensitive shows that a number of them have made good progress in deveoping certain aspects that hep to enhance confict-sensitive practice, for exampe: inking better practice in confict areas directy to their agency mandate (why) deveopment and usage of operationa guidance for working in confict areas such as toos for confict anaysis (what) training in confict and peace reated skis (how) appointment of speciaist skied staff (who), but they have generay been ess successfu in ensuring that progress is even across different aspects so that they connect and add up to more than the sum of their parts. Thus the eve at which the anaysis is carried out country office, headquarters or section wi be determined by the eve of the individua conducting it.

108 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 7 BOX 2 Exampes of bad, and good, connections In agency A, progress was made in terms of the organisation s commitment to address confict as part of its overarching mandate of poverty aeviation. Some speciaist staff were recruited, and a too for confict anaysis was deveoped. But the speciaists were aowed to focus more on deveoping expicit confict resoution programmes than promoting and enabing confict sensitivity across the rest of the organisation, and the too was deveoped in isoation from the end users, with no comprehensive training programme on how to use it nor any carity about how it fitted with existing panning procedures. Moreover the initiative was announced and roed out from the top with insufficient consutation and participation across the organisation staff acked ownership and were reuctant to use it. In agency B, a refecting on practice initiative invoving a staff across the organisation (both at headquarters and in the fied) identified that, athough theirs was not a peacebuiding organisation, improving practice in confict areas was a priority. Refecting on the agency s mandate for poverty aeviation, and foowing a review of prior and existing programmes in confict-affected areas, a new poicy for working in confict areas was designed drawing on the experience of the agency, partners and other organisations. After consutation, a pan of action to promote better practice was written. This pan identified the most pressing needs as earning, operationa guidance for panning and evauation processes, some skis deveopment, and new strategic partnerships. Key aspects of confict anaysis were factored into existing panning and evauation guideines. Country directors were introduced to these updated pans and guideines directy and a wider awareness raising campaign was conducted, as we as making training in these one of the foca areas of the genera agency training and induction programmes. An eectronic forum was created where peope from different regions and in different parts of the agency coud share their different good and bad experiences with the new approach and provide support to each other in appying it to their respective areas of work. The first exampe in Box 2 shows that even where an agency has severa of the key components needed for confict sensitivity, this wi not contribute to mainstreaming uness they are panned and impemented in a joined-up way. A possibe way of remedying the disconnect in agency A woud be to initiate a comprehensive cross-organisationa consutation process (aso invoving reevant externa partners) in the ight of which both the confict anaysis too and poicy framework coud be reviewed. These steps coud contribute to buiding a sense of ownership, and increase the ikeihood of the poicy and the too becoming an active part of the organisation s practice. 4. Refecting on experience Step 3: Refecting on one s own and others experiences There is a great dea of experience that can be drawn on to buid an agency s own institutiona capacity. Just as no confict context is the same, no two agencies are the same, so what works for one agency, oca office, or sector may not work for another. However, refecting on why and how others experiences might or might not work for one s own organisation can in itsef provide usefu insights. Other experiences generay come from three main sources: other parts of the organisation; other organisations; and essons from the mainstreaming of other issue-based frameworks (eg gender, environment). 4.1 Interna experience Other parts of the organisation can provide usefu experiences; arger organisations and those with operations in mutipe geographic settings usuay offer a weath of experience and knowedge that can be drawn upon. A review of organisation-wide experiences of working in confict-affected areas is therefore often a usefu first step in a mainstreaming process. Organisations that beong to an aiance or network wi aso be abe to draw on the experiences of sister organisations. 4.2 Experience of other agencies Research has shown that agencies often find it most usefu to earn and draw inspiration from organisations with simiar mandates, operating in a simiar geographica context or of a simiar size, and from speciaist confict reated organisations. In particuar, agencies can draw on others experiences of estabishing confict units, appointing confict advisers or bringing in outside confict speciaists. There is aso a range of networks that can offer organisations wishing to mainstream confict sensitivity the weath of their own refections and earning on confict and institutiona capacity reated issues see Tabe 5. Confict units and advisers wi be most successfu in mainstreaming confict sensitivity when they hep practitioners and poicy- and decision-makers to increase the impact and sustainabiity of their work. There is currenty an unresoved debate, particuary amongst donor agencies, as to whether designated confict or peacebuiding units are more or ess effective for mainstreaming confict sensitivity than fied-based

109 8 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 speciaists. Currenty, the Canadian Internationa Deveopment Agency (CIDA) has a headquarters based Peacebuiding Unit that provides peacebuiding support to CIDA s regiona teams. The UK government, on the other hand, has recenty chosen to increase its emphasis on region-based confict advisers who support country programmes directy. Other agencies argue that confict is everybody s business and reject the idea of designated speciaists fearing that they wi impede the mainstreaming of confict sensitivity by marginaising it within one department or individua. Tabe 5 Source Name of Network / Main focus of work Contact detais OECD Member States biatera donor agencies, EU, IFIs Donor and UN agencies Large US deveopment / humanitarian INGOs (and other INGOs) Canadian NGOs, institutions, academics and individuas German government and NGOs and networks Confict Prevention Deveopment Cooperation Network Poicy-reated work, mainstreaming within biatera agencies CPR Network Poicy and operationa issues Transition, Confict and Peace Working Group, InterAction Poicy and operationa issues reating to US INGOs Canadian Peacebuiding Co-ordinating Committee Anaysis, shared earned, faciitation and information exchange Working Group on Deveopment and Peace (FriEnt) Project and research evauation, new approach deveopment and diaogue promotion. - then foow ink to Confict and Peace TCP.htm ueberuns/ueberuns.htm Note: this is not an exhaustive ist of confict reated networks. 4.3 Other issue-based frameworks In recent years, organisations have attempted to mainstream other issues gender, environment, rights-based approaches and to deveop institutiona capacity accordingy. Lessons from this mainstreaming experience can be usefu in deveoping institutiona capacity for mainstreaming confict sensitivity. Athough confict sensitivity mainstreaming brings up different issues, in particuar because of the inherenty poitica nature of confict, refecting on how an agency has attempted to mainstream gender, environment, or a rights-based approach can suggest reevant ideas, actions and experiences. BOX 4 Learning from gender mainstreaming The experience from the gender fied has highighted three principa eements that need to be considered when attempting to mainstreaming key issues: the consideration of interna and externa poitica processes in which the organisation and its members are engaged the estabishment of processes responsibe for incorporating key issues into the design and impementation of poicies the deveopment of appropriate toos and technica capabiities. 1

110 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 9 Experience from the gender and environment fieds, as we as from confict, suggests that a muti-faceted approach to mainstreaming confict sensitivity is ikey to be most effective. Confict is everybody s business, and a staff have a roe in either mitigating or exacerbating it. But it is aso important to have speciaists in the fied who understand the oca context from a confict perspective and who can make case- and situation-specific observations and recommendations. Simiary, a headquarters based department can serve as an important repository of cross-agency and goba earning, theory and approaches. Without a designated responsibe department in headquarters, it is uncear how the earning from fied staff and region-based speciaists wi be coected and disseminated to other regions, countries and projects. and they can be used, for exampe: to address institutiona weaknesses; for exampe a ack of quaified human resources at the fied eve to promote and train in confict sensitivity (the organisationa assessment may point to strong human resource anaytica capacity in confict issues at the headquarters eve, but imited opportunities for fied staff to reate this knowedge to an understanding of the context. Bringing the two capacities together in a programme panning process that aows for ongoing consutation woud reinforce both) to buid on strengths to overcome bockages or disconnects see Box 2 to address spoiers and threats see Box 5 beow. 5. Opportunities and chaenges Step 4: In ight of the resuts from step 3, identify the key opportunities and possibe chaenges Having refected on the resuts from step 3 and the synthesis of steps 1 to 3, there shoud now be a basis for answering the foowing questions: What are the key needs for institutiona capacity buiding? Where do the key strategic and operationa opportunities ie? How can these opportunities be reaised? Opportunities may incude: new institutiona two-year panning process changing poitica cimates funding opportunity for confict reated work prioritised change of senior staff new staff deveopment fund partners enthusiastic to engage on confict sensitivity recruitment of new members of staff deveopment of muti-donor frameworks deveopment of new country strategy combining activities with other organisations who have more experience in confict sensitivity specific request from stakehoders to address confict issues directy or indirecty BOX 5 Exampes of possibe spoiers and threats an upcoming change in the nationa government ruing party makes the government ess ikey to be sympathetic to peace and confict issues a strategic review process has come up with a very minimaist interpretation of the organisation s mandate which eaves itte room (and few resources) for confict sensitivity commitment to confict sensitivity is over-reiant on one individua who is schedued to reocate or over-oaded with other work resources for cross-institutiona earning are due to be cut because of overa budget cuts focus on organisationa growth rather than quaity means that accountabiity to donors is ikey to be prioritised over accountabiity to stakehoders genera fatigue with new toos and yet another mainstreaming or hot issue ack of acknowedgement that peace and confict are issues that shoud be deat with (either directy or indirecty) by the agency. Options incude estabishing confict units, appointing confict advisers or bringing in outside confict speciaists. To support mainstreaming, the utimate goa of this speciaised support shoud be to buid the capacity of other staff, and the organisation at arge, to impement confict-sensitive programming. The estabishment of a unit charged with mainstreaming confict sensitivity can be a very important starting point for the process. It demonstrates an institutiona commitment. The unit and its advisers can pay an important roe in eading the mainstreaming process and centraising earning and knowedge and disseminating it throughout the organisation. To support the mainstreaming process, confict advisers can work with staff to deveop:

111 10 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 mechanisms and frameworks for poicy deveopment and revision confict-sensitive toos designed or adapted to the organisationa processes and anguage mechanisms and frameworks for procedura changes staff training programmes revised or additiona staff quaifications accountabiity mechanisms revised programme and indicator deveopment guideines revised programme assessment frameworks revised monitoring and evauation guideines guideines for partner capacity assessment and training. See aso section above on the unresoved debate, particuary amongst donor agencies, as to whether designated confict or peacebuiding units are more or ess effective for mainstreaming confict sensitivity than fied-based speciaists. 6. Pan of action Step 5: Prioritise, deveop and impement a pan of action Once the anaysis phase is over it is important to ink it to a pan of action; many agencies have commissioned or undertaken their own anaysis of how to improve practice in confict areas, and individuas themseves have aso ong identified probems and raised issues, but there is a marked fa-off in the impementation of the ideas and suggestions when no ownership is taken of the process of turning the anaysis into action. It is highy desirabe to ensure as wide an ownership as possibe of both the anaysis and the pan of action. (Partia ownership, or a ack of ownership, shoud be seen as a chaenge to overcome rather than an insurmountabe obstace. Committed individuas with itte support have achieved a remarkabe amount in some cases.) A pan of action can be a persona pan (and may not even be anything forma or written down), or something more forma reating to a unit within the organisation or to the organisation as a whoe. The nature of the pan wi depend on the infuence, interest, motivation, and resources of the individua or unit supporting it. Any pan wi have to prioritise and seek a baance between the aspirationa (the perfect confict-sensitive organisation) and the achievabe, given the many very rea constraints that are ikey to be faced and the imited time and resources that can be depoyed to overcome them. Staff in some organisations have found it hepfu to identify both short- and ong-term pans of action and to consut key partners on the foowing key questions: what are the priority needs and how can they be fufied? what are the goas? what strategic aiances need to be deveoped? what resources need to be mobiised? what is the time-frame? where do we start? what is my / my department s strengths and what can we add to the process? For exampe, there may be a pressing need for the agency as a whoe to deveop a comprehensive commitment to confict sensitivity, but itte top-eve support for this in the short term, athough one infuentia manager is sympathetic. Rather than abandoning efforts to change the agency s position, one option woud be to seek some fexibe resources from the manager to deveop methods inking confict anaysis to the programme cyce and to train staff in these methods. Buiding strategic aiances with other ike-minded individuas to engage in awareness raising and advocacy of the importance of confict sensitivity may aso hep. The pan of action wi necessariy invove deveoping confict sensitivity skis, raising awareness and advocating for the incorporation of a confict sensitivity framework. These approaches are expained in more detai beow. 6.1 Skis deveopment (see Annex 2 for additiona resources) Buiding and reinforcing confict-sensitive skis wi support the mainstreaming process and at the same time ensure that the institution is abe to maintain the capacity for confict sensitivity that it has aready buit. Too often, however, training is conducted as a one-time event with itte or no foow-up. Such training is usefu for raising awareness, but offers minima capacity deveopment. Effective training wi buid on the organisation s existing cuture, processes and strengths to offer ong-term support and deveopment of the skis and information required by staff to be confict sensitive. The foowing recommendation for increasing the effectiveness of gender mainstreaming in peace operations is reevant: Existing gender-awareness training programmes for peacekeepers shoud be given in a more systematic manner accommodating the usua six month rotation of peacekeepers and integrating context based genderawareness. This shoud in turn be inked to monitoring and evauation of the appication of this training. 2

112 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 11 It is a mistake to offer a staff the same training. Some organisations have taken this approach to the Do No Harm too or Interest-based Negotiations, for exampe. A more effective approach is to offer a staff in the organisation an introduction to confict sensitivity, foowed up with specificay taiored training for different areas of the organisation: eg poicy anaysts, panners, project impementers, monitoring and evauation speciaists, fied staff, senior managers. Confict sensitising existing courses and staff deveopment opportunities can be an effective way of achieving this taioring. The training itsef, genera or job-specific, aso needs to be foowed up with a ong-term capacity deveopment pan. Staff need to be encouraged and given the space to appy their course earning to their daiy work, to try new approaches and to earn from their mistakes. Confict advisers can be used as mentors to hep work through chaenging issues. Performance objectives and reviews can aso be used to provide staff with the space and encouragement to expore areas of confict sensitivity for themseves. For exampe, a water speciaist may participate in a genera introductory course on confict sensitivity, but then be encouraged to research various aspects of the intersection between confict and water resources. The water speciaist coud then share the new earning with other staff or with partner and ike-minded organisations to ensure that as many peope benefit as possibe. Organisations frequenty rey heaviy on training, workshops and seminars to meet their staff capacity deveopment needs. But forma training courses are not the ony approach avaiabe, and depending on an organisation s cuture, structures and resources may we not be the most effective approach. BOX 6 Aternatives to training Search for Common Ground, a peacebuiding organisation, has deveoped a cross-fertiisation programme between different offices in different confict areas. An individua from one country office spends ten days to two weeks with a counterpart in another country office. The visitor earns from the activities and approach in the host country office and then takes that knowedge home to see how it may be appied. Likewise, the individua in the host country can earn from the knowedge and experience of the visitor. Search for Common Ground is aso deveoping Committees of Practice, which incude staff from their offices around the word who are working on simiar themes or using simiar skis. These groups wi initiay come into contact with each other through workshops but wi ater keep in touch through e-mai exchanges and periodic activities. The purpose of the Committees is to hep buid common knowedge within the organisation and to document this knowedge for future use within and outside the organisation. As Box 6 above shows, peer earning and exchanges can provide an opportunity for staff to earn from others who are aready knowedgeabe about the materia, and aso about the organisationa context. Other approaches to training can be categorised under three headings: Share, Learn, and Support. Sharing can invove approaches ike secondments, where a staff member is temporariy posted to a part of the organisation that has had some success in impementing confict sensitivity, or an important component of confict sensitivity. Secondments can aso be to other organisations where effective earning can take pace. Conversey, an organisation that has had some success mainstreaming confict sensitivity may consider seconding an appropriate member of staff to a partner organisation that is having ess success. Exchanges are simiar to secondments, except that two organisations benefit rather than just one. For exampe, the peacebuiding department of an organisation may offer a confict speciaist to the monitoring and evauation department of either their own organisation or an outside organisation. In exchange, the peacebuiding unit gets the expertise and support of a monitoring and evauation speciaist so they can earn more about the opportunities and chaenges for mainstreaming confict sensitivity in monitoring and evauation processes. Partnering is another form of sharing earning and experience that buids on the advantage of diversity and economies of scae. In Uganda, for exampe, a group of deveopment agencies designated representatives from each of their organisations to form a working group to earn about confict anaysis together. The working group then worked together to buid capacity for confict anaysis in each member organisation. In this way the team was abe to buid on each member s strengths and ensure that each organisation benefited from the diversity of the group. Another approach woud be to take advantage of economies of scae by bringing together a group of organisations and designating ead responsibiities for earning and dissemination to different members. Organisation A might focus on confict anaysis, organisation B on indicator deveopment, and so on. Then, when a member organisation needs hep on a particuar aspect, they coud turn to the responsibe organisation for speciaist support. Incuding partners in confict-sensitive skis deveopment is essentia. Joint skis deveopment with coaborating partners can support and reinforce confict sensitive capacity deveopment within a wider range of organisations. Learning can aso invove working with partner or ike-minded organisations. A network of practitioners,

113 12 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 either from within the organisation or outside, can provide an important source of experientia earning. As with the exampe of partnering above, the network need not be comprised of confict sensitivity speciaists. Gender and environment speciaists, for exampe, can often provide a weath of information with respect to successes and chaenges of mainstreaming. A forma or informa community of practitioners from ike-minded organisations is a that is required to share experience and seek the advice of others. These groups may aready exist at some eve, perhaps in the form of a donor coordination committee or a network of vounteer-sending agencies, or it may be necessary to create them. Brown-bag unches can be very effective within an organisation or for organisations ocated in cose geographic proximity to each other, whie e-mai networks can be usefu for connecting across arge distances. Such networks are not compicated to estabish. Space for refection is aso an important aspect of earning. Informay refecting on past practices and competed projects can be an effective means of better understanding the compexities of confict sensitivity and for informing decision making around new project or programme design. Externa space for refection is equay important, and may take the form of support for education eave, night casses or summer schoos, and sef-funded eave. Even just one day per month at a oca ibrary or equivaent can provide staff with important space for reading and earning from previous experience. BOX 7 Training and skis deveopment Cathoic Reief Services (CRS) has an expicit commitment to peacebuiding, which is refected in the organisation s mission statement. Its strategic pan incudes buiding capacity in peacebuiding. In addition to deveoping in-house training capacity, CRS has, since 2000, joined with the Joan B. Kroc Institute for Internationa Peace Studies at University of Notre Dame to offer a peacebuiding summer institute for staff and partners. The 10-day course covers conceptua understanding and various training methodoogies, such as inter-reigious diaogue. There is a ot of staff interest in attending the course and staff have to compete for paces: criteria incude the usefuness of the training to the individua's particuar area of work, and the individua s position in CRS. CRS wi aso be conducting a wordwide training-of-trainers course in the use of the Caritas peacebuiding manua that was pubished in the course of conducting a confict anaysis in Boivia, a deveopment worker discovers substantia issues with and rights, but knows nothing about and rights in Boivia, the worker can find out if there are any experts in that area through an easiy accessibe thematic and geographica database on the organisation s intranet. They can then make contact with the expert directy, or contact a SIDA confict adviser. SIDA had previousy used this approach successfuy as a mainstreaming too for environmenta issues. Resource centres can aso provide an effective means of support. Whether virtua (eg internet based) or rea (eg a ibrary or document centre), resource centres can provide a usefu repository of reference materias for practitioners, poicy staff and others. When designing a confict anaysis, for exampe, it is often hepfu to see what types of anayses other organisations have used. There are unikey to be toos or frameworks that can be used as they stand, but the experience of others can provide a usefu base and source of new ideas or approaches. Resource centres must be easiy accessibe, with data and essons earned stored in a format that is easiy retrievabe. 6.2 Advocacy and awareness raising Confict sensitivity is an approach that different organisations wi adopt for a variety of different reasons, depending on their organisationa cuture. But it is important to ensure that it is not reegated to a set of sterie and tokenistic toos, usefu to make superficia adjustments rather than profound, ong-asting transformations. 3 Awareness raising seeks to buid support for mainstreaming by heping other organisations, or other parts of one s own organisation, to experience a confict-sensitive approach and understand how it reates to them. A the toos and processes mentioned in this chapter wi support awareness raising by heping staff answer questions such as: what is the organisation s objective? how shoud the organisation interact with the confict dynamics? what processes and procedures support the organisation s actions? to whom is the organisation accountabe? Box 8 beow provides an exampe from Kenya on one approach to raising awareness. Support is an equay important component of skis deveopment. The Swedish Internationa Deveopment Agency (SIDA) offers a hep desk service that connects practitioners working in the fied with academics and researchers at two eading Universities. For exampe, if in

114 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 13 BOX 8 Awareness raising with district commissioners in Kenya The confict-sensitive approaches programme, in coaboration with the Office of the President, supported and faciitated a Kenyan district commissioners workshop on confict-sensitive approaches to deveopment. The workshop, which was organised by Africa Peace Forum, aimed to introduce and raise awareness on confict-sensitive approaches to deveopment, humanitarian assistance and peacebuiding work among 86 Kenyan district commissioners. As civi servants representing the government at the oca eve, district commissioners pay an instrumenta roe in the impementation of deveopment and peacebuiding programmes, and were therefore identified as a key audience for institutiona awareness raising. Athough the workshop focused on raising awareness at the district eve, good inkages were estabished with the Office of the President which provided participants as we as being co-organiser. The workshop introduced the toos and concepts of confict anaysis to the participants and presented them with ways of incorporating confict anaysis into programming and project cyces. The discussions drew on the district commissioners experiences in identifying the root causes of conficts in their areas, and the stakehoders invoved. These discussions gave participants the opportunity to share experiences of successes and faiures. They expressed great interest in foowing up the workshop with more targeted training, and incuding additiona districts. In contrast to awareness raising, advocacy is used to effect a specific action or response based on a specific argument. Like awareness raising, advocacy is often conducted with individuas or organisations that do not yet support a confict-sensitive approach. Awareness raising and advocacy can be most effective when used together to promote mainstreaming of confict sensitivity. One principe of both advocacy and awareness raising is that if peope are to support an approach, it needs to be buit on their anguage and experiences (and those of their organisation) so they are abe to see its reevance to their work. When first introduced to confict sensitivity individuas or organisations are often hostie for fear that it just means more work for them. Peope tend to be much more receptive when they understand how confict sensitivity can be used to increase the sustainabiity and impact of their existing and future initiatives. 6.3 Externa poicy drivers and commitments Certain organisations support their work by adopting guideines, poicy frameworks, and agreements deveoped by other organisations. Some of these are isted in Tabe 6, beow. Many of these guideines can be used by agencies and interested parties to further the buiding of institutiona capacity either within their own organisation, or in terms of advocating to others. However, staff in some organisations may be unaware of these materias, or may not understand how they can be used as a reminder of the reevance and importance of confict sensitivity, or as a ever to obtain, for exampe, extra resources. Exampes: 1. A country director for a donor agency is putting in a proposa to headquarters for finance for an extra member of staff (a part-time nationa confict adviser). He notes how this wi significanty enhance the agency s capacity to deiver on its commitments as outined in the OECD-DAC guideines Heping Prevent Vioent Confict: Orientation for Externa Partners. 2. A nationa civi society organisation uses nationa governments, and aso EU donors, commitment to the Cotonou Agreement (Artice 11) to advocate against a government-sponsored and EU-funded infrastructura project that is ikey to cause confict and unrest amongst a minority group. 3. An Emergency Unit deputy director for a humanitarian organisation uses a point in the revised Sphere Guideines to strengthen her request for resources for confict anaysis training for a her staff: Understanding the nature and source of confict heps to ensure that aid is distributed in an impartia way and reduces or avoids negative impact. In confict-affected settings, an anaysis of the actors, mechanisms, issues and context of the confict shoud be carried out prior to programme panning. 4

115 14 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 TABLE 6 Guideines, poicy frameworks and agreements Document Reevant to Nature Where to find AU-NEPAD African countries Vision and strategic framework to address chaenges currenty facing African continent nepad/fies/en.htm ACP-EU Cotonou Agreement Certain African, Caribbean, Pacific Governments and EU Member States Overarching trade and aid agreement based on poitica diaogue deveopment/body/cotonou/ agreement/agr06_en.htm See particuary Artice 11 on confict OECD-DAC Heping Prevent Vioent Confict: Orientations for Externa Partners (Apri 2001) Donors from OECD Countries Poicy guideines adopted by OECD-DAC reated to how deveopment assistance can contribute to confict prevention and peace See particuary Confict & Peace Network Page where fu guideines are avaiabe EU Programme of Action for the Prevention of Vioent Confict EU Member States and donors High eve poicy commitment to mainstream confict prevention in a aspects of its engagement (incuding deveopment co-operation and trade) eng/pdf/vioent.pdf See aso other EU statements reated to importance of mainstreaming confict issues SPHERE Handbook 2004 Humanitarian agencies Standards and best practice agreed upon by humanitarian agencies. handbook/hdbkpdf/ hdbk_c1.pdf See particuary Common Standards 3: Response. These recommend understanding confict and using the understanding to inform programming 7. Monitor and evauate resuts Step 6: Monitor and evauate resuts and review pan of action What impacts have the capacity buiding steps had on your organisation? What went we, ess we and, most importanty, why? Go back to step 1 and re-do the anaysis: what has changed, what has not, and what can be done to enhance the impact? For exampe, the organisation may have progressed substantiay in anaysing confict and inking the anaysis to confict-sensitive panning through the deveopment and adoption of an agency specific too. But confict-sensitive monitoring and evauation may not have been conducted because it was not prioritised in the strategic pan, or because no specific resources were aocated. Therefore after re-doing your institutiona anaysis you may concude that institutiona commitment and resource aocation shoud be prioritised rather than further deveopment or training in confict reated toos. Just as in project or programme monitoring and evauation, setting cear goas and objectives from the outset is critica to ensuring the abiity to monitor and evauate the impementation of the action pan in the future. Foca areas incude:

116 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 15 strengthening interna capacity. Evauate the degree to which the process has enhanced your interna organisationa capacity for confict sensitivity. Review programmes panned and impemented within the organisation s confict-sensitive framework, and survey staff opinions on how the process has worked. working with partners and ike-minded organisations. Possibe approaches incude evauating how the process has strengthened externa reationships in terms of partners capacity for confict sensitivity. As previousy mentioned, institutiona capacity buiding for confict sensitivity shoud not stop within the organisation. In order to impact on the context, the evauation needs to aso incude partners (oca and internationa). Monitoring and evauating progress shoud therefore aso incude key externa partners and coud take pace as part of joint review and earning sessions. In formuating, impementing and evauating the pan of action, it is important to be aware of and avoid the so-caed project trap. Whereas confict sensitising a project may have a beneficia impact on the organisation-wide commitment and abiity to be confict sensitive, it shoud not be confused with confict sensitising an organisation. Indeed, going beyond project-eve confict sensitivity is a key objective of the mainstreaming process, as it ensures that a future projects and activities have an enabing institutiona environment for confict sensitivity. Accountabiity In many situations of structura or vioent confict, institutions that are charged with deveoping and impementing significant socia, economic and judicia programmes and poicies are not hed directy accountabe to the peope affected by these interventions. Internationa agencies are generay hed accountabe to their own governments for project outputs, but often not for operationa approaches or impact. To enabe staff and organisations to be responsibe for actions reated to confict, they must have the skis, processes and procedures that support and reinforce such accountabiity. The skis and processes outined in this chapter wi hep to create an environment conducive to mainstreaming confict sensitivity, but wi need to be combined with measures to enabe accountabiity to confict sensitivity at the individua, programmatic and institutiona eves. Confict sensitivity requires support for the accountabiity of individuas and organisations to: beneficiaries and institutions who are being supported organisations and individuas that fund programmes nationa and internationa aws and principes appicabe to the institution or individua. A. Institutiona accountabiity Confict sensitivity wi be most effective and easiest to mainstream when it has institutiona support across programmes. Means of strengthening institutiona accountabiity incude: deveoping a poicy that confirms the organisation s commitment to a confict-sensitive approach making confict-sensitive programming and support processes key criteria in decision-making by the institution s senior management team (or other group that is responsibe for approving programme strategies and arge expenditures) estabishing mutua accountabiity for confict sensitivity through joint programming and co-ordination with other programmes and institutions supporting mutua capacity and accountabiity for impementing confict-sensitive toos and processes through joint training and the deveopment of toos and procedures for mainstreaming confict sensitivity conducting reguar externa evauations with confict sensitivity as one of the criteria; invoving partners, other institutions (governments, civi society, donors) and affected communities in reguar reviews and fina evauations to hep ensure that those impacted by the intervention have infuence over it. B. Programmatic accountabiity At the programme eve it is important to have an interna process that supports confict-sensitive programming and aows for new approaches to be tested and mistakes reduced through joint probem soving. Projects shoud be approved and evauated partiay in terms of their confict sensitivity and responsibiity for confict-sensitive programming shoud be shared within the institution. Programmatic accountabiity can be enhanced by: encouraging and reinforcing confict-sensitive programming in the deveopment and evauation of programmes. Encourage joint probem soving and adjustment of programmes during interna and externa meetings to make them more confict sensitive estabishing confict-sensitive programming criteria and appying the criteria to each project or programme proposa. Criteria coud incude eements such as: anaysis, capacity assessment, identification and participation of stakehoders, direct and indirect programme impact, coordination and co-operation with other actors, and participation of partners in programming enabing (and instituting mechanisms for) programmes to receive recognition and to document success stories in support of awareness raising invoving partners, other institutions (governments, civi society, donors) and affected communities in the

117 16 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 programming process to ensure the process remains attentive to both those who are invoved in its impementation and those who are impacted by it (for funders) requesting confict-sensitive programming in cas for proposas, and aocating sufficient resources and time, for the programme deveopment and evauation process necessary for confict-sensitive programming C. Individua accountabiity Beyond the institutiona and programmatic accountabiity measure, organisations need to ensure that a staff members understand their responsibiity in a confict environment; are provided with the resources and skis necessary to meet that responsibiity; and are enabed to do so through incentives and support structures. Individua accountabiity thus requires: 8. Endnotes 1 Maya Buvinic, Project for Women in the Third Word: Expaining their Misbehaviour, Washington: Internationa Centre for Research on Women, 1984 pg 21, cited in March, C., I. Smyth, and M. Mukhopadhyay, A Guide to Gender-Anaysis Frameworks, Oxford: Oxfam GB, Internationa Aert, Gender Justice & Accountabiity in Peace Support Operations: Cosing the Gaps Section 1, London: Internationa Aert, December March et a: The Sphere Project, The Sphere Handbook 2004, Oxford: Oxfam Pubishing, forthcoming 2004: 35. individuas who understand the roe and objective of their organisation in reation to confict. These can be communicated in a number of ways that wi provide staff and partners with a justification for why they are mainstreaming confict sensitivity: review of the mandate, founding principes, human rights aw, humanitarian principes (see aso section 6.2 on advocacy and awareness raising, above) staff who understand how to act in a confict-sensitive manner. If reinforced throughout the organisation, the capacity and skis deveopment opportunities outined in this chapter wi encourage them to change the way they do their programming staff who have the opportunity to impement a new confict-sensitive idea or approach that wi hep them own and advocate for the approach within the organisation. When impementing a new concept or idea, individuas need to receive support and reinforcement throughout the programming process. As they earn, they wi be abe to adjust the programme and avoid doing harm during this earning process confict-sensitive skis to be incuded in job descriptions for new staff. These skis incude: confict anaysis and reporting, faciitation of participatory processes, quaitative programme deveopment, monitoring and evauation, confict resoution or negotiating, coordination and reationship buiding (see section 6.1 on skis deveopment, above) eements of confict-sensitive programming, reating to the position of the staff member, to be incuded in staff appraisa and evauations, but ony at the point where the individua s earning and work is demonstraby fuy supported by the organisation.

118 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 17 Annex 1 ANNEX 1 Institutiona framework for mainstreaming confict sensitivity (CS) Key aspects necessary for deveoping institutiona capacity. Sub-issues that form part of the key aspect (ist is suggestive, not compete) Possibe strengths, as they reate to the sub-issues Possibe weaknesses, as they reate to the sub-issues Suggested actions / usefu experiences A. Institutiona commitment Key questions: Is the externa context (both in terms of in-country and regiona situation, and goba poicy environment) conducive to CS? What is the current extent of interna institutiona commitment to foow through on CS within the organisation? How deep and how wide is the organisationa commitment to CS? Internay: 1. Leadership s persona background 2. Leadership s perception of the organisationa history 3. Commitment at non-management eves Externay: 4. Overarching poicy frameworks 5. Nationa, regiona and goba poitica context and events 1. Leadership have persona experience and understanding of the importance of CS 2. The identity and past experiences of the organisation (as perceived by its eadership) underine the need for a confict-sensitive approach 3. There are strong champions for CS in key management and non-management positions 4. Poicy frameworks are conducive to mainstreaming a CS approach (strong ink with the more genera poitica cimate) 5. Nationa, regiona and / or internationa poitica events and processes are conducive to prioritising CS 1. Leadership ack understanding / experience of how CS can hep the organisation achieve its mandate and / or eadership is ideoogicay opposed to CS 2. Past organisationa experiences suggest that CS woud not be appropriate (eg the organisation has had a traumatic experience of peacebuiding programming) 3. Lack of understanding and commitment to CS on non-management eves and / or resistance to change 4. Poicy cimate does not prioritise CS 5. CS is perceived as too sensitive due to (nationa, regiona and / or goba) poitica events Interna and externa advocacy and awareness raising contributes to deveoping institutiona commitment. References to how CS the organisation fufi its existing poicy commitments and achieve its mandate. Western donor agencies have signed up to the OECD-DAC guideines on preventing vioent confict (2001). Reference to this commitment can be used as an advocacy too. Interna discussion forums can support strengthened institutiona commitment as we as promote organisationa change. For exampe, a UK-based deveopment NGO has estabished a confict custer open to a interested staff which meets twice a month to discuss issues of common concern in reation to confict, providing a usefu forum for cross-organisationa exchange and earning.

119 18 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 Key aspects necessary for deveoping institutiona capacity. Sub-issues that form part of the key aspect (ist is suggestive, not compete) Possibe strengths, as they reate to the sub-issues Possibe weaknesses, as they reate to the sub-issues B. Organisationa cuture and institutiona structures Key questions: Is the organisationa cuture of the organisation enabing for CS? Do existing institutiona structures support confict-sensitive practice and how might they need to change? 1. Communication: Extent of cross-organisationa knowedge transfer and earning. 2. Hierarchy and structure: (De)centraised? Strongy hierarchica or not? Do the institutiona structures inhibit or promote CS? 3. Systems and procedures: Existing poicies and frameworks for panning and programming 1. Strong tradition of cross-departmenta earning and documentation of essons earned 2. Cear roes and responsibiities (whether centraised or decentraised structure). Benefit of cear foca points for confict (confict advisers, custers, intra-organisationa earning mechanisms etc) 3. Anaysis of confict (and associated poitica and power process issues) can be fitted reativey easiy into existing poicy and operationa frameworks. 1. Intra-departmenta jeaousies, fiefdom mentaities, artificia divisions and genuiney different cutures can breed confict and inhibit earning 2. Overy centraised structures, generating a ack of ownership in and / or suspicion towards centra initiatives, or untransparent, decentraised structures inhibiting cross-organisationa poicy deveopment. Potentia risk of marginaisation if peacebuiding is the excusive domain of one (technica) organisationa unit. 3. Existing poicies and operationa frameworks focus on outputs and service deivery, expicity excuding more poitica anaysis and / or more process-oriented frameworks. C. Capacity deveopment Key question: What skis does my organisation as a whoe, coeagues in different departments and partners need to have and / or deveop for CS to become a reaity? 1. Human resources Recruitment: What skis do we ook for? Reward: What skis and achievement of what type of objectives are rewarded? Retention: How are skied individuas retained? 2. Training and induction: What staff and partner skis do we seek to deveop and how? 3. What anaytica toos does the organisation currenty use? 1. Understanding of the context and anaytica capacity is a key component of recruitment and is aso rewarded. Individuas with confict and context skis are offered incentives to stay in the organisation (fexibe postings, fied / headquarter rotation systems, training opportunities, competitive saaries etc) 2. Induction and training on confict-reated issues are offered to both staff and partner organisations, incuding security training with a power anaysis eement, confict transformation courses and / or advocacy training 1. Technica and service deivery oriented skis are prioritised over anaytica skis and context knowedge. 2. Induction and training programmes focus on technica skis and do not incude power / poitica anaysis (either operationa or in an advocacy context) 3. Either no toos for confict anaysis used and / or other toos do not ink anaysis to practice 3. Organisation is currenty revising its handbook of operationa practice commitment to CS has been made

120 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 19 Key aspects necessary for deveoping institutiona capacity. Sub-issues that form part of the key aspect (ist is suggestive, not compete) Possibe strengths, as they reate to the sub-issues Possibe weaknesses, as they reate to the sub-issues D. Externa reationships Key questions: What kind of partnerships do we need to compement our own CS capacity buiding? How do our externa reationships (incuding with donors) and the context within which we operate infuence our capacity buiding abiities? 1. Partners perspective on CS and capacity 2. Funding cimate 3. Operating environment 1. Partners are enthusiastic about CS and have (or are abe to deveop) capacity for it 2. Indication that CS can bring more funds to the organisation 3. Operating environment aows time for refection on CS and organisationa change 1. Partners are uneasy about (or against) incorporating a CS approach and / or don t have (or are unabe to deveop) capacity for it 2. The organisation s funding structures make adopting a CS approach probematic (it wi be hard to get resources for it) 3. High-intensity confict and acute crisis make it near-impossibe to invest time (and resources) in CS capacity buiding E. Accountabiity Key question: What accountabiity measures are needed to advance confict-sensitive poicy and practice? 1. Appraisa and incentives (staff accountabiity) 2. Reporting (accountabiity to donors) 3. Participation and evauations (accountabiity to stakehoders, see aso Externa reationships, above) 1. Fexibe staff appraisa systems that incude evauation of anaytica skis and context understanding 2. Reporting structures emphasise organisationa earning and encourage reference to both direct and indirect impacts 3. Partners and other oca stakehoders participate in project/programme evauations and are invoved in foow-up 1. Appraisa systems emphasise technica skis and output performance over anaysis and process 2. Infexibe reporting criteria restrict earning and excude an assessment of wider (unintended) impacts 3. Evauations invove ony the organisation and the donor, no significant input from other stakehoders

121 20 Confict-sensitive approaches to deveopment, humanitarian assistance and peace buiding: toos for peace and confict impact assessment Chapter 5 Annex 2 Annex 3 Resources and training faciities The foowing organisations provide a variety of training opportunities. This ist is merey indicative, and there are hundreds of other organisations and trainers that offer a variety of opportunities. Agencies and individuas shoud expore in detai the nature and contents of any training to ensure that it adequatey meets their specific needs. Canadian Internationa Institute of Appied Negotiation (CIIAN), a Canadian organisation dedicated to the prevention and resoution of destructive confict at the oca, nationa and internationa eves. CIIAN provides individua courses, certificate programmes and professiona designations. For further information, pease ca (001) or see their website at Coaition for Peace in Africa (COPA), an African membership organisation, organises skis trainings and workshops on confict transformation for deveopment, human rights and humanitarian practitioners. For further information, pease ca (South Africa) or (Kenya) or e-mai [email protected]. There is a sister organisation in Asia Action Asia e-mai: [email protected] Cooperation for Peace and Unity (CPAU), an NGO network in Afghanistan, offers training courses on Working With Confict and Do No Harm and has deveoped a training curricuum for deveopment and humanitarian NGOs working in Afghanistan. For further information, pease ca +92 (0) (Peshawar office), or +93 (0) (Kabu office) or e-mai [email protected] Eastern Mennonite University hosts a Summer Peacebuiding Institute with courses in confict transformation and peacebuiding. For further detais, see web site: Fied Dipomacy Initiative, an NGO based in Leuven, Begium, provides training courses in fied dipomacy and confict impact assessment. For further detais, see web site: Institute for Confict Resoution (INCORE) at the University of Uster, and the United Nations University (UNU), offer summer courses in second track dipomacy, confict transformation and evauation and impact assessment of peacebuiding programmes. For further information, pease contact Fiona Barr: [email protected] or visit web site: Peaceworkers UK, a London based NGO, provides inks to education and training programmes aimed at enhancing the skis of civiians working in regions affected by confict. A UK Training Directory can be downoaded from: Responding to Confict (RTC), a Birmingham based NGO, offers confict training courses for humanitarian and deveopment practitioners. See web site for further information: On-ine sources of further information on training opportunities are avaiabe from UNOCHA at ReiefWeb and aso from Bibiography Action for Confict Transformation, Action for Confict Transformation Refections of Practitioners Wordwide. Phnom Penh: ActionAsia, Buvinic, M., Project for Women in the Third Word: Expaining their Misbehaviour. Washington: Internationa Centre for Research on Women, Fischer, S., J. Ludin, S. Wiiams, D. Ibrahim Abdi, R. Smith and S. Wiiams, Working with Confict. Skis and Strategies for Action, London: ZED Books/ Responding to Confict, Leonhardt, M. and C. Gaigas, Confict-Sensitive Deveopment: A Review of Poicy and Practice. London: Internationa Aert, Saferword with IDRC, Lange, M., Buiding Institutiona Capacity for Confict Sensitive Deveopment and Humanitarian Practise. London: Internationa Aert, forthcoming March Internationa Aert, Gender Justice & Accountabiity in Peace Support Operations: Cosing the Gaps Section 1, London: Internationa Aert, December Internationa Aert, Resource Pack for Confict Transformation. London: Internationa Aert, Avaiabe in Engish, French and Russian. March, C., I. Smyth, and M. Mukhopadhyay, A Guide to Gender-Anaysis Frameworks, Oxford: Oxfam GB, Nyheim, D., M. Leonhardt, and C. Gaigas, Deveopment in Confict: A Seven Step Too for Panners. London: Internationa Aert, Saferword and FEWER, Reycher, L. and T. Paffenhoz (Eds.), Peacebuiding: A Fied Guide, Leuven: Fied Dipomacy Initiative, Avaiabe in Engish, French and Dutch. Sherriff, A., Supporting and Enhancing Community Based Peacebuiding, Guidance Notes for DAC-OECD CPDC Working Group. London: Internationa Aert, November The Sphere Project, The Sphere Handbook Oxford: Oxfam Pubishing, forthcoming 2004.