ALNAP Global Study on Beneficiary Consultation and Participation

This study examines humanitarian practice in the Democratic Republic of the Congo, focusing on the three conflict-affected areas of Bukavu, Goma and Uvira.

The Case of Democratic Republic of Congo - Executive Summary

Part 1

INTRODUCTION
Consultations with affected populations and their participation in humanitarian action now seem to be widely accepted as crucial to effective social targeting, resource utilisation, accountability, sustainability and impact. As such, the involvement of affected populations has become a central tenet of the policy approach of a number of humanitarian agencies. However, there remain wide variations in practice in regard to the role of affected populations in humanitarian work. This realisation prompted the Active Learning Network on Accountability and Performance (ALNAP), to commission this Global Study, seeking to comprehend how participatory approaches can be established in crisis contexts.

Eastern Democratic Republic of Congo (DRC) was selected as a case study in order to gain better understanding of participation during a protracted and complex crisis, which is characterised by its strong ethnic component, a collapsed state, the presence of myriad international aid actors with diverse backgrounds, and the emergence of numerous Congolese aid organisations. Bukavu, Goma and Uvira were chosen as study sites for the following reasons: Rwandan people displaced in 1993 and 1994 settled there resulting in the presence of Congolese and international humanitarian actors and extensive ethnic diversity.

The study's basic hypothesis is that the participation of affected populations in humanitarian action is both feasible and beneficial in terms of project outcomes and long term social impact. In addition, the research team drew up a series of pertinent questions, such as: who should participate? Why is participation necessary? And how can it be achieved? High levels of insecurity and difficult access conditions added another challenging dimension to the research process.

Part 2

CONTEXT
The DRC is a vast country with a wealth of mineral resources. At the end of the 1980s, under the dictatorship of President Mobutu Sese Seko, the country plunged into an economic and political crisis that revived secessionist tendencies dating from the post-independence period. This situation threatens the unity of a state whose future was already uncertain due to its size, geographical topography and the diversity of its people.

Most of the fighting in the DRC can be traced to the eastern provinces. Ethnic demands and economic interests provoked an inter-ethnic and international complex conflict. Several efforts to restore peace are underway.

Since the Great Lakes crisis of 1994 (resulting in the mass displacement of the neighbouring Rwanda population), numerous international humanitarian actors and Congolese aid organisations have emerged in eastern DRC. Furthermore, in 2002, this multifaceted crisis was compounded by a series of natural disasters, notably the eruption of the Nyiragongo volcano (Goma) and the Mount Mitumba landslides (Uvira).

 

Part 3

FINDINGS
The research reveals that participation is an attitude rather than a concept. Indeed, for international actors, participation is seen as a theoretical notion. Despite the various techniques and tools available, it is often difficult to initiate it. However, for Congolese aid actors - non-governmental organisations (NGOs) and the local administration - participation implies that they are involved in humanitarian assistance alongside international aid bodies. Denominational organisations emphasise their long-term proximity to affected populations, giving them certain legitimacy. Finally, affected populations are less likely to define participation. When the subject is brought up, they mention neighbourly solidarity, while highlighting the need to adapt humanitarian assistance to their needs. Humanitarian organisations are viewed as a source of employment.

We examine the different forms of participation according to the type and phase of the (different) crises that affect the region - protracted and rapid onset crises.

Protracted crises

• In the remission stage, Congolese and international aid actors that have been present in the region for a long time provide most of the humanitarian assistance. Congolese aid actors, committees and other organisations created by affected populations play an important role.
• At the peak of the emergency, which rarely receives media coverage, affected populations become organised and, where necessary, move to areas where humanitarian assistance is available.

Rapid onset crises

• During the first few hours after the disaster (acute crisis) neighbourly solidarity plays an important function. Congolese NGOs assist as best they can.
• During the `classic' emergency phase, international humanitarian actors take centre-stage. Few attempt to involve affected populations directly; lack of time is the reason most commonly given. Indeed, international humanitarian actors prefer to control distribution.
• The post-emergency phase bears similar characteristics to the remission phase of a protracted crisis.

The research team examined each phase of the project cycle.

• Needs assessment Participation is limited to consulting or informing affected populations. Surveys, interviews and censuses are the most commonly used tools.
• Beneficiary targeting Affected populations participate mainly through committees, which are often in the best position to identify beneficiaries. In many cases, humanitarian actors and donors impose pre-determined beneficiary-selection criteria, which restricts the input of these committees. Sometimes the selection process can have a political dimension.
• Project design Actors organise workshops, meetings and focus groups, and establish partnerships. At this point, standardised tools are of limited use and communication between aid actors and affected populations is of the utmost importance.
• Implementation Two forms of participation were observed during this phase: direct/individual participation and participation via organisations created by affected populations. In practice, this takes the form of materially motivated activities (like food-for-work) and the carrying out of specific tasks (such as providing the workforce).
• Monitoring and evaluation There were few examples of participation in relation to monitoring activities. Evaluators reference focus groups, meetings and interviews as the source of their information.

Part 4

CONCLUSION
In eastern DRC, participation is, for the most part, possible and has a positive and beneficial impact on humanitarian assistance. For Congolese organisations and affected populations, their participation depends on the context, the type of crisis and the project-cycle phase.

There appears to be uncertainty among humanitarian actors as to how certain factors impact on the participation of affected populations. What is for some an argument for participation is a constraint for others.

• Participation is often seen as a means of increasing the influence of humanitarian assistance. It can result in improved access to affected populations, geographically and culturally, ensuring, therefore, a more harmonised approach in a certain region, or a response that is more likely to continue in the long run. Participation is also presented as a matter of principle: populations must be involved in decisions that concern them.
• Meanwhile, other actors would prefer a reduction in participation (or its complete absence) in order not to compromise humanitarian assistance, either because needs are urgent (hence participation is a `waste of time'), because they are too great (projects are too large and thus participation is not practical), or because affected populations do not possess the required skills. They contend that impartiality and neutrality would be compromised by the participation of affected populations in certain programmes, especially where there is lack of trust between the two constituents.

This difference of opinion illustrates the extent to which it is important for humanitarian actors and affected populations to comprehend fully the following factors:

• legitimacy (both of humanitarian actors and affected populations);
• access and security conditions; and
• impartiality and independence.

Part 5

RECOMMENDATIONS

Aid workers in the field must:

• avoid hi-tech participatory techniques;
• take into account group maturity and forms of local organisation, and do not overlook other forms of participation as an alternative to the direct involvement of affected populations; and
• distance themselves from standardised beneficiary selection criteria and try to identify the real vulnerable groups.

Aid organisations must:

• develop methods for training humanitarian staff in participatory approaches during an emergency; and
• support or engage in activities that encourage communication between Congolese organisations and international aid actors.

Donors must:

• develop more flexible beneficiary- and sector-selection criteria.
   

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