JIPS Mission to Tbilisi, Georgia December 2016

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1 JIPS Mission to Tbilisi, Georgia December 2016 Participants: JIPS Profiling Advisor and JIPS Durable Solutions Project Coordinator Dates: 19 th to 29 th November 2016 MISSION BACKGROUND The JIPS support to Georgia was initiated by a request received from the Danish Refugee Council (DRC) in May The main focus of the request was to advise on a potential durable solution analysis for IDPs with the aim of informing an IDP policy reform process planned by the authorities. (Annex 1: JIPS support request form). Discussions coincided with an invitation from the Government of Georgia to the Special Rapporteur of the Human Rights of IDPs, Dr. Beyani, whose follow- up visit to Georgia took place in September One of the issues highlighted by the Special Rapporteur in meetings with the both government and the aid community was the importance and benefit of an in- depth durable solutions analysis. Following this visit, DRC and UNHCR scheduled for a JIPS mission in November, following the elections in the country. The JIPS mission is grateful to the UNHCR and DRC for the excellent hosting of the mission. MISSION OBJECTIVES: To overall objective of the mission was to support the Ministry for IDPs from the Occupied Territories, Refugees and Accommodation (MRA), UNHCR and DRC and other relevant partners in collectively engaging on an IDP durable solutions analysis by supporting the establishment of a technical working group meant to facilitate and guide the process. The mission had the following specific objectives: Partnerships: meet with relevant actors, including the MRA and other relevant ministries, national and international humanitarian and development partners supporting durable solutions, as well as technical partners collecting population data, including the National Statistics Institute and potentially research institutes to discuss the durable solutions analysis in key stages and explore the interest and role in the steering committee. Context analysis: establish a common understanding of key durable solutions questions to be included in analysis Mapping: gather existing analysis/reports and datasets on IDPs, including data collected by the MRA, the Georgian National Statistics Office, civil society organisations, INGOs, and the UN and comparable data on host communities to identify gaps. Capacity building: identify potential needs for training/capacity building activities on durable solutions analysis (and possibly monitoring). See Annex 2: Mission TORs for more information. 1

2 MISSION ACTIVITIES Overall, the JIPS mission undertook the following activities (see Annex 3 for a detailed mission agenda): Supporting to build a coordination platform: o Bilateral meetings with MRA and other Government institutions were held in order to introduce JIPS and the Durable Solutions Project 1 as well as to explore the potential scope of the durable solutions analysis, and ways in which this could inform the upcoming policy changes. o Meetings were also held with key Georgian Civil Society organizations, UN agencies, INGOs and donors 2 in order to understand the key durable solutions analysis gaps and explore the interest to participate in a comprehensive analysis process. o Focus group discussions with IDP communities, especially youth and women, were conducted in the Tserovani IDP settlement and the Vazisubani School Collective Centre in order to explore communities views on their current situation and how they see solutions. Mapping o Data and existing information was mapped out using the IASC Framework for Durable Solutions for IDPs criteria matrix to identify gaps in durable solutions analysis Presentation mission findings: o Finally JIPS also presented key findings of the mission and potential ways forward for durable solutions analysis at a DRC conference for the PRM funded project Consolidating IDP Integration in Georgia. Both the MRA and Ministry of Labor, Health and Social Affairs also presented at the conference. The conference was intended for civil society and aid community working on integration and durable solutions. MISSION LIMITATIONS The mission was limited to Tbilisi and surrounding villages, thus limiting the possibility for deeper context specific observations/recommendations from the JIPS missions on the situation outside Tbilisi. MISSION ACHIEVEMENTS The purpose of this mission was i. to explore the relevance of a durable solutions analysis in Georgia, in line with the 2010 IASC Framework on Durable Solutions for IDPs, to inform and upcoming policy change in Georgia and ii. support the creation of a suitable coordination platform that would steer such analysis. After consultations with potential partners and assessment of existing data, JIPS recommended a phased approach for 1 At the global level Inter- agency process is underway to operationalise the 2010 IASC Framework on Durable Solutions for Internally Displaced Persons by developing a library of indicators that can be used to measure progress towards durable solutions for IDPs. The Framework establishes widely recognized criteria that can be used to determine the extent to which a durable solution has been achieved. Under the guidance of the Special Rapporteur on the Human Rights of IDPs, and in collaboration with a broad group of development, humanitarian and peacebuilding actors and the Joint IDP Profiling Service, the project aims to develop tools for comprehensive yet practical approaches to analyzing durable solutions in displacement situations. 2 The complete list of partners met include: IDP Women Association Consent, Social Programs Foundation, For Better Future, Charity Humanitarian Centre Abkhazeti, Georgian Young Lawyers Association, Consortium Legal Aid Georgia, UNDP, FAO, UNWomen, UNICEF, UNHCR, ASB, CAREBRPM, EU and SDC 2

3 conducting a durable solutions analysis. Firstly, a desk review of existing surveys and data from the IASC framework perspective i. to provide a durable solutions analysis to the extend possible and ii. identify gaps in information/ data. From there recommend relevant data collection processes address the identified gaps of information, so as to complete a comprehensive durable solutions analysis. MISSION OBSERVATIONS AND RECOMMENDATIONS Based on the mission findings and JIPS experience, the mission made the following key observations and recommendations: 1. Potential for using analysis based on the IASC Framework for Durable Solutions to inform upcoming policies: During the last decade the Georgian Government incrementally moved from temporary strategies for addressing displacement towards more long- term measures. There is a strong legal and policy framework to support the current integration strategies. 3 However, durable solutions to internal displacement have mainly focused on durable housing and livelihoods, with a prioritized focus on housing solutions. 4 In 2017, the Government will implement an IDP action planning process along with several other policy reforms. This is a relevant juncture to be able to take stock and understand the needs of the IDP population, the impact of current policies and the existing evidence base for new policy formation. JIPS identified that the 2010 Inter- Agency Standing Committee s (IASC) Framework on Durable Solutions for Internally Displaced Persons is not utilised fully as a reference for planning in the Georgian context. There is strong potential and benefit for the IASC Framework to be applied more broadly as basis for analysis of the situation of the IDPs. Furthermore this analysis is a critical opportunity to guide and unlock existing policy challenges and move forward with a more comprehensive durable solutions agenda, including through consultations with the IDP communities Limited data on the diversity within the IDP population and displacement related vulnerabilities: Currently, IDPs are mainstreamed as one of the many vulnerable groups in humanitarian and development programs, rather than basing these interventions on analysis of their actual vulnerabilities and needs. However, IDPs are not a homogenous group and include a wide diversity of individuals from various backgrounds and currently living in numerous contexts. During the mission, one commentator highlighted to JIPS, If IDPs are characterized by one thing, it s their diversity. Displacement history, state support received, generational differences, and location of displacement are some of the characteristics that play a significant role in the degree to which IDPs have integrated or achieved a solution, however there is limited analysis of the extend that IDP groups have progressed with solutions. Understanding the extent to which IDPs to date have overcome displacement related vulnerabilities and what the remaining challenges are would benefit the Government and partners in outlining the most relevant strategies for supporting durable solutions to displacement. This analysis would help highlight areas where specific interventions to address displacement- related vulnerabilities still are relevant, and where a shift to social vulnerability targeting as part of the regular state welfare system is more appropriate. 3) The Government of Georgia s 2007 IDP Action Plan, the 2012 Ministerial Decree 320 on Durable Housing Allocation Criteria and the 2015 IDP Livelihood Action Plan prioritise IDP integration and involve inter- Ministerial and key stakeholder cooperation and coordination. 4 The government started focusing on livelihoods only in 2014, when the IDP Livelihood Strategy was adopted. The Strategy was accompanied by its first Action Plan in 2015, though the implementation of the Action Plan started only in 2016 with limited resources. There is a differentiation the government policy and its implementation with regards to durable housing and livelihoods since these two have not been prioritized equally, from the same time period. 5 In December 2017, the policy reform process was accelerated with the MRA outlining the implementation for a shift from status to needs based assistance. This process makes analysis using the IASC framework as a starting point and the recommendations of this report an even more important priority. 3

4 3. Cross- learning from other contexts: Similar policy reforms are also underway in other countries, where the Government has assumed a strong leadership role on providing solutions to the displaced communities. In this regard, the Government of Georgia may benefit from cross- learning and exchanging with countries that are facing similar challenges. JIPS is currently supporting the Government of Colombia in an analysis of their model to move from status based to needs based assistance. JIPS has been supporting the Colombian Government since 2015 and plans a mission in 2017 to evaluate methodologies and tools with regards to durable solutions in line with the IASC Durable Solutions Framework and Colombia s Effective Enjoyment of Rights framework. In addition, discussions have been held on supporting the development of comparative methodologies and analysing the information already collected to determine vulnerability and to support assistance targeting. 4. Understudied impact of the IDP allowance: During the mission, many commentators emphasized that employment and livelihoods of for the majority of communities seem to reflect the overall strained economic situation of the locality they are residing. IDP allowance and other state benefits are seen by some to have discouraged IDPs from engaging in formal sector livelihood activities and may be seen to have led to a surge of livelihood activities in the grey economy. The IDP allowance offers a safety net that many IDPs are not keen to give up on, while at the same time it was reported that this allowance may cause resentment from other communities. The overall amount provided is rather low compared to cost of living especially in cities. For example, the Integrated Household Survey from shows that the median income for an IDP household is approximately lower than that of a non- IDP household, and that the majority of this income is based on the IDP allowance. This supports the argument that IDPs attachment to this allowance is linked to the status it implies, but potentially also to a lack of understanding on how to access other type of assistance. Greater analysis on the impact of the IDP allowance is needed in order to better understand the importance of it among the different IDP groups, especially vis- à- vis other income sources. Such an analysis could provide very useful input to the policy shift towards a needs- based approach. Among the actors met during the mission and IDP communities, there were concerns around how this shift will be implemented, especially in relation to the removal of the IDP allowance, which the majority of IDP households are entitled to. This policy change has both political and financial implications for the state. It also has significant implications for IDPs who view the current status and contingent allowance as a security blanket, in addition to its symbolic significance. At the same time, this shift in approach from blanket assistance to the majority persons with an IDP status to a more vulnerability- based approach is considered timely in order to advance the durable solutions agenda and ensure that responding to the assistance and protection needs of IDPs are ultimately incorporated in the regular state welfare system. Moving forward with such a policy will have differing effects on IDPs, considering their different situations, living conditions and vulnerabilities. 5. From a status- based to a needs- based policy: While the Government s planned policy reform to transition IDPs from the current status- based social welfare support system to a needs- based targeting of the family/individual seems to be a necessary step in the process of addressing the needs of IDPs, this process will require a significant evidence- base. A comprehensive analysis on the different vulnerabilities and needs faced by some IDP groups would allow for the Government to understand the potential remaining displacement related vulnerabilities and the impact that the shift to a needs- based approach would have on different groups of IDPs in order to undertake any policy change in through an informed process. During the JIPS mission, the MRA expressed interest a 4

5 comprehensive analysis using the eight IASC durable solutions criteria, although the timeframe for undertaking this exercise vis à vis the planned policy change was recognized as a potential problem. 6. Durable housing solutions in focus: Durable housing as been the main focus of the government in responding to the displacement situation. According to the MRA, 40% of IDPs have received durable housing. However, the options and quality of housing have evolved over the years, and while some older caseloads received privatized apartments in collective centers, more recent IDPs have received newly constructed apartments or money for purchasing apartments. During the mission it was witnessed that some privatized collective centers are showing serious issues with regards to adequate living standards, and some IDPs continue to have concerns in regard to housing. Even though durable housing has been an important way for the Government to support durable solutions, there is reason to believe that analysis of housing conditions of the IDPs would help in understanding the impact that durable housing policies have had, as well as identifying key areas where continued efforts to support solutions in this regard are required. This particularly true for privately accommodated IDPs, who have been overlooked by State policy over the years and their specific needs were not considered and analysis of this population group s living conditions is crucial to underpin further policy work. 7. Current data available to conduct immediate initial analysis: There is a large quantity of good quality socio- economic data and analysis of IDPs and the host community in Georgia, including the MRA database and the recent census (2014). There are also numerous large and small scale studies that address many relevant themes. A mapping of existing data and analysis done during the mission, based on the IASC Framework, showed that a durable solutions analysis could partly be done based on existing sources. Both GEOSTAT and the MRA expressed interest in providing access to existing data for a secondary data analysis in line with the durable solutions framework. This analysis could help consolidate information that currently often focuses on a specific thematic area into a more comprehensive analysis of the profile of the IDP population. It would also help to provide recommendations on a way forward, including in terms of filling the potentially existing gaps in regard to understanding the situations of different socio- economic groups of IDPs. RECOMMENDATIONS: In order to better understand and take stock of the current durable solutions landscape in Georgia and to feed into the current policy reform process, JIPS recommends a comprehensive durable solutions analysis primarily based on existing data, which may potentially be complemented by new data collection if deemed necessary. Such an analysis would provide a valuable evidence- base for the on- going policy shift from a status- based approach to a needs- based one. JIPS recommends that any durable solutions analysis process be based upon an analytical framework of the IASC Framework on Durable Solutions to IDPs definition of durable solutions and the eight criteria it outlines. The work led by the Mandate of the Special Rapporteur on the Human Rights of IDPs in collaboration with a broad group of partners and coordinated by JIPS on operationalizing the IASC Framework into measurable indicators can form a starting point for such an analysis. This process could involve the following elements: A) Secondary data analysis to inform ongoing reform discussions/development vulnerability methodology: A tailored secondary data analysis should be carried out in order to consolidate existing data in one comprehensive picture to identify 5

6 recommendations that can feed into the reform process. JIPS recommends that this work be overseen by a time- bound working group, led by the Government and consisting of humanitarian and development partners supporting durable solutions. The first step would be to assemble the technical working group that will steer the durable solutions analysis including through the following activities: Endorsing the analytical framework for the exercise; Contributing existing data for the analysis Undertaking a joint secondary data analysis using existing data Identifying ways of addressing potential gaps in existing data Based on the findings, collaboratively designing recommendations for strategically prioritizing policy and programming in support of durable solutions In line with the principles of the IASC Framework on Durable Solutions for IDPs, the analysis should focus on: A comparative analysis of IDPs and the host community to identify remaining displacement- related vulnerabilities. An analysis of the different groups of IDPs, including different socio- economic groups as well as generational perspectives to identify the specific concerns of different IDPs Expected timeframe for such an exercise from the establishment of the working group to finalisation of the analysis would be approximately 3 months. B) Potential primary data collection: Depending on the findings of the secondary data analysis, the need for additional data collection may be identified, but any such recommendation should be based on a clearly identified gap in existing information and an operational use. These gaps may be addressed through quantitative data (e.g. surveys) and/or qualitative data (e.g. community consultations) depending on the need. Expected timeframe, resources and required expertise for such data collection would vary depending on the selected approach. Cross- learning with similar international contexts: The current policy reform could benefit from exchange of experiences from other countries that are undertaking similar processes, such as Colombia. This could entail different approaches from remote discussions facilitated by JIPS to learning visits. NEXT STEPS As agreed upon during the mission, JIPS is available to support the Government of Georgia and other partners in the following ways: 1. Finalising the terms of reference of the technical working group that will steer the durable solutions analysis 2. Supporting the technical working group in developing an analytical framework for the analysis, including identification of relevant themes and indicators 6

7 3. Supporting the secondary data review process and analysis as agreed with partners in country 4. Facilitating cross- learning opportunities with other governments as relevant ANNEXES: Annex 1: JIPS support request form Annex 2: Mission TORs Annex 3 Detailed mission agenda 7