Humanitarian governance in Ethiopia:
A view from INGOs
29 September, 2009 | by Abby Maxman (CARE Ethiopia), Waleed
Rauf (Oxfam GB, Ethiopia), David Throp (Save the Children UK,
Ethiopia)
ReliefWeb
Source: ODI - Humanitarian Practice Network (ODI-HPN)
The spark for a debate
Though the article provides a valuable perspective on how humanitarian
action and disaster management has changed in Ethiopia over recent
decades, it misses an opportunity to provide a fuller analysis of the
diversity and evolution of actors working in the humanitarian field. It
also fails to present contrasting perceptions and discourse, which could
help with much-needed consensus building.
The article focuses entirely on how selected informants from within
Ethiopian Government circles perceive the conduct, motivation and
performance of international Non-Governmental Organizations
(INGOs). While these perceptions are valid and important, no attempt is
made to present the perspectives of the INGOs themselves. This could
have balanced the article considerably. The case study deliberately sets
out to 'study' only part of the 'case'.
Recognising change
The article draws a caricature of INGOs as stagnant and set in their
ways. This is contrasted with the dynamic efforts of successive
Ethiopian regimes to manage humanitarian affairs. Yet there have been a
number of innovations made by INGOs recently, particularly in the area
of accountability and transparency. These include: the Red Cross, Red
Crescent and NGO Code of Conduct, the Sphere Project, and the
Humanitarian Accountability Partnership.
INGOs have changed in other ways too. They are no longer traditional
'charitable giving' organisations. Their work is now shaped by
participatory methods; rights-based frameworks; capacity building
approaches; knowledge management initiatives; and so on. In fact, given
the fast changing environment which shapes INGO behaviour and
possibilities, it is unlikely that a reactionary INGO - resistant to change
and adaptation - would survive at all.
In Ethiopia, INGOs have contributed to a large and well documented
body of work, which supports government-led efforts to promote a
more holistic disaster management approach aimed at reducing
vulnerabilities and managing risk. Specific areas of contribution include:
Even at the sharpest end of emergency response - in dealing with severe
acute malnutrition - INGOs have notably shifted their approaches over
recent years. In line with current best practice, they have moved away
from classical 'feeding centre' interventions towards 'community
therapeutic care' programmes, which are premised on building local
(and sustainable) capacities for early identification, referral, and
treatment of the most vulnerable.
Humanitarian partnership
This list of examples helps to illustrate the fact that INGOs are not
organisations stuck in the 'famine and food aid' paradigms of the past,
nor are they primarily obsessed with feeding their own coffers through
overstated and inappropriate emergency responses. Such assertions are
anachronistic and not borne out by recent experiences and work taking
place on the ground.
Partnership with the government underpins all INGO work in Ethiopia
and is generally built around constructive technical collaboration at
different levels. Many projects and programmes aim to contribute to a
more holistic cycle of disaster management that goes beyond emergency
response by attempting to address underlying vulnerabilities, and by
promoting preparedness and mitigating shocks.
Beyond programmatic work, many INGOs also aspire to make relevant
technical contributions to policy discussions through research and
project based learning on a variety of topics, including disaster risk
reduction and mitigation. These initiatives are frequently welcomed by
officials and supported by donors who provide financial resources and
other inputs. A lot of this policy work has the added aim of making
programmes more timely, targeted and cost effective.
The start of a debate
The recent HPN article provides an opportunity for INGOs to join an
important debate. How might we work more positively together, under
government leadership, to address vulnerabilities and improve
preparedness? How might we respond within a more comprehensive
disaster management framework?
This goes beyond technical matters. It implies the need to reshape
relationships between INGOs and government, moving beyond the
stereotypes set out in the article. Greater acknowledgement of (and
reflection on) the challenges, influences and trends that shape the
evolution of INGO practice would also be helpful. This could offer a
better and more constructive point of reference upon which to build
dialogue.
These efforts to reshape relationships would require a number of
elements. To begin with, a common vocabulary and conceptual
framework for disaster risk management must be established and agreed
by all stakeholders. Work must also be done to build trust and
consensus through honest dialogue; and the creation of safe, mutually
respectful spaces to discuss potentially contentious matters. This
includes getting consensus on the way in which needs, risks and
vulnerabilities are conceptualised, quantified and articulated.
All of this would help in the development of technically appropriate
strategies for risk reduction and, when the need arises, for responses to
acute shocks and crises. Efforts to help community voices be heard and
incorporated into policy options would improve practice as well. Finally,
the role of the media should be examined, both at the domestic and the
international level.
Around the world - from Latin America to Africa to South Asia -
INGOs are working with governments and other stakeholders to reduce
the risk of disasters and to mitigate their potential effects. There is no
reason why Ethiopia should be an exception to this.
The views offered here are given in a personal capacity and intended as
a constructive contribution to debate and dialogue.
A view from INGOs
29 September, 2009 | by Abby Maxman (CARE Ethiopia), Waleed
Rauf (Oxfam GB, Ethiopia), David Throp (Save the Children UK,
Ethiopia)
ReliefWeb
Source: ODI - Humanitarian Practice Network (ODI-HPN)
The spark for a debate
- Earlier this year, the
Overseas Development
Institute published a
Working Paper called
Humanitarian
governance in the new
millennium: An
Ethiopian case study.
The paper was later
summarised in an HPN
article, which featured
in the June edition of
Though the article provides a valuable perspective on how humanitarian
action and disaster management has changed in Ethiopia over recent
decades, it misses an opportunity to provide a fuller analysis of the
diversity and evolution of actors working in the humanitarian field. It
also fails to present contrasting perceptions and discourse, which could
help with much-needed consensus building.
The article focuses entirely on how selected informants from within
Ethiopian Government circles perceive the conduct, motivation and
performance of international Non-Governmental Organizations
(INGOs). While these perceptions are valid and important, no attempt is
made to present the perspectives of the INGOs themselves. This could
have balanced the article considerably. The case study deliberately sets
out to 'study' only part of the 'case'.
Recognising change
The article draws a caricature of INGOs as stagnant and set in their
ways. This is contrasted with the dynamic efforts of successive
Ethiopian regimes to manage humanitarian affairs. Yet there have been a
number of innovations made by INGOs recently, particularly in the area
of accountability and transparency. These include: the Red Cross, Red
Crescent and NGO Code of Conduct, the Sphere Project, and the
Humanitarian Accountability Partnership.
INGOs have changed in other ways too. They are no longer traditional
'charitable giving' organisations. Their work is now shaped by
participatory methods; rights-based frameworks; capacity building
approaches; knowledge management initiatives; and so on. In fact, given
the fast changing environment which shapes INGO behaviour and
possibilities, it is unlikely that a reactionary INGO - resistant to change
and adaptation - would survive at all.
In Ethiopia, INGOs have contributed to a large and well documented
body of work, which supports government-led efforts to promote a
more holistic disaster management approach aimed at reducing
vulnerabilities and managing risk. Specific areas of contribution include:
- support to enhance the effectiveness and efficiency of the
Productive Safety Net Programme, including the current pilot in
pastoral areas;
- support to the Enhanced Outreach Strategy (a national health and
nutrition initiative targeting children and mothers);
- efforts to protect and diversify livelihoods, including through
enhancing access to credit, markets and strengthening value
chains;
- initiatives to build local government capacities to better manage
risks and contingencies;
- support to early warning systems;
- innovative drought cycle management interventions in pastoral
areas;
- support to immunisation campaigns and other activities to
mitigate public health epidemics
Even at the sharpest end of emergency response - in dealing with severe
acute malnutrition - INGOs have notably shifted their approaches over
recent years. In line with current best practice, they have moved away
from classical 'feeding centre' interventions towards 'community
therapeutic care' programmes, which are premised on building local
(and sustainable) capacities for early identification, referral, and
treatment of the most vulnerable.
Humanitarian partnership
This list of examples helps to illustrate the fact that INGOs are not
organisations stuck in the 'famine and food aid' paradigms of the past,
nor are they primarily obsessed with feeding their own coffers through
overstated and inappropriate emergency responses. Such assertions are
anachronistic and not borne out by recent experiences and work taking
place on the ground.
Partnership with the government underpins all INGO work in Ethiopia
and is generally built around constructive technical collaboration at
different levels. Many projects and programmes aim to contribute to a
more holistic cycle of disaster management that goes beyond emergency
response by attempting to address underlying vulnerabilities, and by
promoting preparedness and mitigating shocks.
Beyond programmatic work, many INGOs also aspire to make relevant
technical contributions to policy discussions through research and
project based learning on a variety of topics, including disaster risk
reduction and mitigation. These initiatives are frequently welcomed by
officials and supported by donors who provide financial resources and
other inputs. A lot of this policy work has the added aim of making
programmes more timely, targeted and cost effective.
The start of a debate
The recent HPN article provides an opportunity for INGOs to join an
important debate. How might we work more positively together, under
government leadership, to address vulnerabilities and improve
preparedness? How might we respond within a more comprehensive
disaster management framework?
This goes beyond technical matters. It implies the need to reshape
relationships between INGOs and government, moving beyond the
stereotypes set out in the article. Greater acknowledgement of (and
reflection on) the challenges, influences and trends that shape the
evolution of INGO practice would also be helpful. This could offer a
better and more constructive point of reference upon which to build
dialogue.
These efforts to reshape relationships would require a number of
elements. To begin with, a common vocabulary and conceptual
framework for disaster risk management must be established and agreed
by all stakeholders. Work must also be done to build trust and
consensus through honest dialogue; and the creation of safe, mutually
respectful spaces to discuss potentially contentious matters. This
includes getting consensus on the way in which needs, risks and
vulnerabilities are conceptualised, quantified and articulated.
All of this would help in the development of technically appropriate
strategies for risk reduction and, when the need arises, for responses to
acute shocks and crises. Efforts to help community voices be heard and
incorporated into policy options would improve practice as well. Finally,
the role of the media should be examined, both at the domestic and the
international level.
Around the world - from Latin America to Africa to South Asia -
INGOs are working with governments and other stakeholders to reduce
the risk of disasters and to mitigate their potential effects. There is no
reason why Ethiopia should be an exception to this.
The views offered here are given in a personal capacity and intended as
a constructive contribution to debate and dialogue.
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