Capacity development in planning for displaced populations - Ethiopia
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By Leonora MacEwen, Education programme specialist, IIEP-UNESCO, for CIES 2017. More information: http://www.iiep.unesco.org/en/how-should-we-plan-education-settings-conflict-and-instability-cies2017-3890
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Capacity development in planning for displaced populations - Ethiopia
- 1. Capacity development in planning for displaced populations Leonora MacEwen Programme Specialist IIEP-UNESCO CIES, Atlanta, 2017
- 2. How to include refugees in education sector plans? Institutional capacities: Political will, MoE leadership, int. and nat. frameworks and mechanisms Organizational capacities: e.g. EiE Cluster, technical and financial WGs, partners Individual capacities: Technical skill in data analysis, ‘crisis-sensitive planning champions’ • Government-led • Participatory • Well-organized • Capacity development process →
- 3. Currently, no joint planning between refugee camps and host communities ARRA and UNHCR plan in camps MoE plans in host communities → Perceived and real inequities in the system
- 4. Capacity challenges in Ethiopia Institutional capacities: Reservations to 1951 Convention: access to education and the labor market Organizational capacities: plethora of partners with unclear ToRs: Cluster, ARRA, UNCHR, MoE Individual capacities: Limited technical skill in planning, particularly at woreda levels
- 5. Capacity development to plan education for refugees: Ethiopia Outcome 1: Strengthened capacity for crisis-sensitive educational planning at Federal, Regional and Woreda levels in refugee affected regions Outcome 2: Integrated and coordinated approach utilized for the planning of refugee and host community education Outcome 3: Strengthened capacities for the management of education at Woreda and refugee camp levels by 2018
- 6. Capacity development to plan for refugees: Ethiopia Outcome 1: Strengthened capacity for crisis-sensitive educational planning at Federal level and Regional and Woreda levels in refugee affected regions 1. School Mapping tools and methodology for refugee affected regions reviewed and adapted 2. GIS data updated for host communities in refugee affected Woredas and collected in refugee schools 3. School Mapping data analysed for refugee camps and affected host community Woredas and data utilized in Woreda level crisis-sensitive planning processes
- 7. Capacity development to plan for refugees: Ethiopia Outcome 2: Integrated and coordinated approach utilized for the planning of refugee and host community education 1. Roles and responsibilities of different stakeholders involved in refugee education and host community education are formalized and understood by all 2. Planning tools from ARRA and MoE reviewed and harmonized to reflect refugee issues
- 8. Capacity development to plan for refugees: Ethiopia Outcome 3: Strengthened capacities for the management of education at Woreda and refugee camp levels by 2018 1. Harmonised set of school inspection tools developed 2. Harmonised approaches to school supervision developed
- 9. Next steps for IIEP’s work on planning education for displaced populations Technical cooperation (Ethiopia) Knowledge generation (Teacher management study) Training (Global level training with partners)
Editor's Notes
- Planning is an opportunity in and of itself, given its very nature, to bring together different actors and integrate approaches. IIEP and GPE have defined essential characteristics of the planning process. First and foremost, developing an ESP must be a country-led process. Since an ESP is a national policy instrument, it is first the responsibility of the national government, which ultimately decides on priorities and is responsible for the plan’s implementation. Secondly, developing an ESP is a participatory process. Engaging political leaders and technical experts will allow you to strike a balance between ambitions and constraints. It will also help raise awareness and gain the commitment of a wide range of education stakeholders. This is really the opportunity to engage humanitarian actors. To efficiently manage this participation, developing an ESP must be a well-organized process. Ensuring clarity on the roles and responsibilities of different actors is essential. Finally, the development of an ESP is a capacity development process. The process of ESP preparation is as important as the final product. CAPACITIES needed at all levels: Finally, the planning process should be viewed as a capacity-development process. Because plan implementation depends on a wide range of actors within te administration, from central to school levels, and it is important that capacity at all these levels be addressed. Actual work on drafting a plan and involvement in consultations are of great value to developing capacities and strengthening motivation. Based on the technical cooperation we’ve undertaken in Burkina Faso, Mali, Uganda and South Sudan, we find the following pre-conditions necessary for effective crisis-sensitive planning. 1. Institutional capacities: Political will to make education crisis-sensitive; MoE leadership, int. and national frameworks and mechanisms 2. Organizational capacities: organizational mechanisms/technical WG – clear mandate/roles and responsibilities 3. Individual capacities: Capacity of key education ministry officials, invested advocates for crisis-sensitive planning. Planning for safety, resilience and social cohesion can be difficult to integrate into the educational planning process due to its sensitive language and limited funds available. The experience of IIEP shows that outspoken advocates for these issues are the key for institutions to collaborate and lead activities to address conflict and disasters in education. In IIEP’s experience, the following elements are essential when preparing an education sector plan. The plan preparation process must led by the government. Yet, it should also be participatory. Political leaders and technical experts discuss to strike a balance between ambitions and constraints. The process can raise awareness and generate commitment from a range of education stakeholders, including humanitarian actors, but also teacher unions, or groups that are marginalized or have a stake in conflicts (the R as Representation that Alan Smith and other researcher colleagues discussed earlier). To manage this participation, the process must be well-organized, with clear on roles and responsibilities. And, quite importantly, sector plan preparation should be a capacity development process. In IIEP’s work with Burkina Faso, Mali, Uganda and South Sudan, we have noticed a need to develop capacity at three levels. Firstly, institutional capacities, such as political will among the MoE top leadership to prioritize crisis-sensitive education. Or commitments to international or national standards, frameworks and mechanisms, such as, for example, the Safe Schools Declaration. Secondly, organizational capacities, such as setting up technical working groups and formal collaboration mechanisms, and for example working with the Education Cluster or emergency authorities. And thirdly, individual capacities, such as technical planning skills of individual staff, or working with key education ministry officials as crisis-sensitive education “champions”.
- Ethiopia hosts over 780,000 refugees in 5 regions as well as in the capital Addis Ababa (see Annex 2 map of refugee affected areas as of November 2016). Both the protracted nature of many of the refugee settlements, as well as the massive influx of new arrivals from South Sudan into Gambella (the region hosting the largest number of refugees) has resulted in an increase in tensions between some host and refugee communities over access to basic resources and services. An analysis conducted by UNICEF in 2015 for the Peacebuilding, Education and Advocacy Programme (PBEA), identified that four of the five regions ‘are affected by long standing conflicts shaped by a number of factors including their peripheral location, inequities in levels of development between and within regions, the volatility and influx of refugees from border countries, recurrent flooding and drought, the presence of multiple ethnic groups, weak governance, and limited social services. This has weakened the legitimacy of the Ethiopian state amongst the population in these regions and low levels of social cohesion have undermined community resilience against various shocks and stresses, both man-made and environmental.’ (UNICEF Context Analysis, 2015). 17 Woredas hosting refugees TigrayTselemti, Asgede Tsembla, Tahtay Adiabo Afar Homosha, Bambasi, Mao-Komo Somali Aysaita, Berahale, Dallol, Erebti Benishangul Gumuz Dollo Ado, Kebrebeyah, Awbare Gambella Etang, Gambella Zuria, Goge, Dima Educational planning for refugees appears to be very limited outside of the refugee camps, and currently there is no joint planning being undertaken by the different agencies involved in refugee education and in the provision of education for the host communities. This is despite a call by UNHCR Ethiopia in its Education Strategy of 2015-2018 that there should be greater development of integrated planning of refugee education with local/national education systems. For example, although issues related to emergency and provision of emergency education were reflected to a degree in ESDP V, there was very little mention of provision of education to refugees, despite Ethiopia hosting the largest population of refugees in Africa. Because it is not seen as the MoE’s responsibility, then it is not planned for, regardless of the risks that such a large population of refugees potentially poses to the host communities. Planning by organisations working with the refugees appeared to be focused around annual budget planning and related work planning. There was limited strategic or crisis-sensitive educational planning that looked at all aspects of access, quality, equity, and management, which would result in more effective implementation. It also appears that planned activities are not monitored against a systematic results-based framework. However, both UNICEF and UNHCR adopt participatory planning methods, which engage refugees as well as agency technical staff. This takes the form of an initial needs based planning from camp level. However, limited budgets then make implementation of all programmed activities difficult. The hope is that as a result of the Programme collaboration between UNICEF and IIEP and by undertaking joint planning between host communities and refugee schools, needs will be identified, programmes and budgets developed accordingly and the financial gap identified and filled.
- The 1951 Convention on the Status of Refugees, although ratified by Ethiopia has two Reservations which affect the access rights of refugees to both education and livelihoods. (Articles 17-19 (the right to wage-earning, self-employment and liberal professions) As these services are considered the basic ‘prerequisite for displaced people’s self-reliance and livelihood prospects – whether in exile or on return’ (ODI, 2015 p. 20), the two Reservations to the 1951 Convention have a significant impact on the potential for existing camp based refugees to gain self-reliance. A significant pledge was made recently by the Prime Minister of Ethiopia at the 19th September 2016 Leaders’ Summit on Refugees. This committed to reversing the Reservations to the 1951 Convention. Such a reversal may provide future opportunities for greater integration of refugees into national education and livelihood systems and thereby increase the potential for self-reliance. To do this however regardless of government directives, the tensions between the refugees and host communities need to be ameliorated and the benefits for integration made more visible. Effective coordination of educational planning and management between all partners is a key issue for successful implementation of refugee education services, and the foundation to ensure equity in the provision of education both in and out of the refugee camps. There are many different education coordination groups at federal, regional and woreda levels that cover both refugees and national education implementation. For example, at the federal level, there is an overall Education Technical Working Group which is led by the MoE, which is mandated to cover all education activities across the country. The Education Cluster is tasked with coordinating the provision of education for internally displaced populations (IDPs), while the Refugee Education Working Group coordinates refugee education. Both of these coordination groups operate (in theory) at the Federal, regional and woreda levels. However, the Refugee Education Working Group has no MoE representation. Each of these groups have their own ToRs and responsibilities. This has led to many agencies not actively participating in the various WGs, as there are so many and there is a lack of coordination and communication between them. In Gambella, to improve collaboration between ARRA and MoE, UNHCR is currently conducting a mapping of the education actors, and agreed that there is a need to clearly define roles and responsibilities.
- 1. School Mapping tools and methodology for refugee affected regions reviewed and adapted 2. GIS data updated for host communities in refugee affected Woredas and collected in refugee schools 3. School Mapping data analysed for refugee camps and affected host community Woredas and data utilized in Woreda level crisis-sensitive planning processes The school mapping process provides valuable data for strategic planning purposes. It also highlights the genuine disparities between the refugee and host communities in terms of education provision. Addressing such disparities would help ameliorate the existing tensions between many refugee and host communities. While a school mapping exercise using GIS coordinates has been conducted, and identifies the location of all schools, this was conducted in 2012. UNHCR has also mapped the refugee school locations in the various regions, but it is not clear whether this mapping is linked to or is included in any way in the national school mapping database. Neither of these mapping exercises have been updated to include the latest influx of refugees into the Gambella region. Federal education authorities are able to draw on regional ESPs to inform the ESDP V Mid Term Review (MTR) scheduled for the end 2017 and include key issues for both refugees and host communities
- Output 1 will involve reviewing existing directives, ToRs and other relevant documents that describe roles and responsibilities for refugee education in each of the 5 participating regions, conducting a drafting seminar with core group of stakeholders involved in refugee education and host community education to draft ToRs and holding a discussion seminar with all education stakeholders on roles and responsibilities engaged in refugee and host community education Output 2 is more about reviewing existing planning tools (annual school census questionnaires, survey sampling, etc in order to agree on harmonized planning tools that include refugee data utilized by MoE and ARRA
- One of the things that came up frequently during a recent scoping mission was the need for the MoE to have an understanding of what is going on in refugee camp schools, and to suppor the management of these schools. Several actors were keen to ensure that the MoE is effectively providing inspection and supervision to these schools. As a first step, the need to harmonize the inpection and supervision tools and approaches was identified. To harmonize the inspection tools, we envisage conducting a workshop for school inspectors to review existing school inspection protocols and adapt them where necessary to include issues for refugee schools and on crisis prevention and preparedness measures. This will also involve training refugee and host community school inspectors in refugee affected Woredas. Conduct workshop for head teachers of refugee and host community schools and cluster resource centre coordinators to review existing school supervision protocols and adapt them where necessary to develop an integrated approach to school supervision Train refugee and host community headteachers and resource centre coordinators in refugee affected Woredas