Focus areas of international actors in Ethiopia cut across the humanitarian sector (such as food, shelter, protection and health, as well as water, sanitation and hygiene (WASH) facilities (UNHCR, 2019b, p. 17) and also across more developmental issues (such as education, job opportunities, infrastructure, manufacturing and strengthening governance (World Bank, 2017a).
3 The local integration of refugees in Ethiopia: research questions and methodology
3.1 Research questions
In light of the increasing number of protracted refugee situations, the concept of local integration of refugees has gained ground as a sustainable approach not only in academia but also in political practice. This paper presents results from research conducted on the concept of local integration of refugees in the Ethiopian Somali Region. To understand local integration over the course of the CRRF and the conditions for its successful implementation, this research addresses the following five key factors.
a) Which dynamics, interests and political agendas have shaped the CRRF policy process and, thus, guided the (effective) CRRF implementation in Ethiopia?
It is important to understand the underlying dynamics, interests and political agendas of CRRF stakeholders as these are highly relevant to the political process guiding the CRRF implementation. Based on the assumption that the CRRF implementation needs to bring significant restructuring of resources and competences for the benefit of local authorities, this study aims to shed light on the political economy of the CRRF implementation and the policy process behind it. Governance structures, decision-making processes and motivations are decisive factors that impact the effective realisation of local integration.
b) What are the practical challenges for the CRRF implementation?
Since the CRRF implementation is a complex process involving a multitude of stakeholders on different federative levels, it is likely to face several practical challenges, including parallel service delivery structures, different delivery standards and resource competition (Carver, Gedi, & Naish, 2019).
c) What is the role of local authorities in the CRRF implementation process, and to what extent are they playing an active role in fostering the local integration of refugees?
While the negotiations leading up to Ethiopia’s commitment as a CRRF pilot country have largely taken place at the international and national level, their actual implementation is to be realised at the very local level. To grasp the realisation of local integration, this study looks at the role of local governments and implementing governance structures. The literature suggests that local authorities lack the capacity to be involved in the process in a constant and significant way. This is more relevant for the Somali Region, which belongs to the four “emerging regions” characterised by fragile socio-economic conditions and governance structures that are too weak to deliver most rudimentary infrastructure and services.
d) How and to what degree are international actors engaged in and, thus, supporting the sustainable integration of refugees in line with the CRRF in Ethiopia?
This paper addresses, furthermore, the scope of action of international actors within the CRRF implementation process and the context in which they operate. Durable solutions in LMICs largely depend on the support of the international community. This research examines the international involvement in light of the humanitarian-development nexus.
e) What are the perceptions regarding local refugee integration among the host and refugee communities, and what are the material and community factors that influence these perceptions?
CRRF implementation, if comprehensively addressed, will have a significant impact on the lives of both refugees and host communities. Currently, the relationship between host and refugee communities in the Somali Region is largely peaceful, and the concept of local integration of refugees, therefore, has not encountered any substantial criticism from either group (Carver, Gedi, et al., 2019). But how the impacts of the CRRF implementation are perceived by the two communities might also shape the long-term prospects of the concept of local integration and is, thus, also a subject of this analysis.
By answering these questions, this study aims to create a comprehensive picture of local integration of refugees in Ethiopia. Based on the commitments that are aligned with the GCR and the CRRF, this research assesses factors that determine the degree of successful realisation and, furthermore, derives recommendations for involved actors.
3.2 Case selection and research sites
The Somali Region serves as a case study to answer the research questions. Regarding the overall geographical determination of the research area, the Somali Region was chosen for several reasons. First, it hosts a large number of refugees. Second, the situation for Somali refugees in Ethiopia has generally been a protracted one. Third, it is particularly relevant to CRRF implementation in Ethiopia, given the regional government’s buy-in to the concept and many existing donor activities. And fourth, the refugees and host communities there are ethnically relatively homogenous and less prone to conflict.
Hence, the Somali Region provides a suitable case study for assessing the CRRF implementation in Ethiopia. The protracted crisis in Somalia has displaced millions of persons over the past decades. More than 190,000 of the 700,000 refugees in Ethiopia are of Somali origin (UNHCR, 2019e); they constituted the second largest group of refugees in Ethiopia in 2019. They predominantly live in camps distributed throughout the Ethiopian Somali Region. Whereas refugee populations in other parts of the country and with other origins (South Sudan, Eritrea, Sudan) are similarly significant in number, regional differences regarding the local context and integration potential of the various populations require acknowledgement. For example, since 2009, Eritrean refugees have experienced benefits resulting from the “Out-of-Camp Policy”7 that affect the potential experiences of
7 The “Out-of-Camp Policy” gives Eritrean refugees the right to choose their place of residence freely but under the discretion of the regulations of ARRA (Federal Government of Ethiopia, 2019, Art. 28).
the CRRF implementation. Another political factor to acknowledge is the existence of ethnic tensions between (and among) refugees and locals. Here, Gambella Region is a case in point where the swift influx of refugees from the cross-national ethnicity of Nuer has altered power relations and threatens social peace, complicating both local integration and data collection (Carver, Gebresenbet, et al., 2019; Hagos, 2021). More crucially, the delicate situation has affected local governments’ attitudes towards the concept of local integration, slowing down its implementation. By contrast, there are many CRRF-related activities in the Somali Region. This may be facilitated by the fact that refugees and host communities share a mutual ethnicity and language. Yet, different (sub-)clan structures may still induce tensions.
The interpretation of results must bear in mind the particular context of this case selection;
the intent is to identify lessons learned that can inform policies elsewhere. On the one hand, less conflictual relations due to a shared ethnic identity may provide a comparatively easy field for local integration. Nonetheless, this situation is not unusual; there are many contexts in which refugees and host communities are transnational ethnic kin. On the other hand, many structural issues of the Somali Region, such as the weak capacities of local administrations, high poverty rates and the novelty of the CRRF implementation, pose major obstacles to successful implementation. These structural issues are likewise widespread in other humanitarian contexts, making the Somali Region a specific yet generalisable case study. In summary, these factors exemplify the relevance of the CRRF implementation in the Somali Region and allow for extrapolation to other refugee hosting contexts.
As derived from the Nine Pledges (see Section 2.2), this research is organised along the overriding sectors of education, work and livelihoods, documentation, access to land and peaceful coexistence. These sectors cover most fields of the pledges and combine areas of implementation in which integration seems to have already proceeded (i.e., education) and others that are less advanced (i.e., documentation) or even appear highly conflictual (i.e., land access). Thus, the selection of several sectors allows conclusions to be drawn from different contexts, political settings and specific challenges within the Somali Region. Aw-Barre and Sheder, both within the Aw-Aw-Barre Woreda, were chosen as the two refugee camps to be assessed in more detail (see Appendix 2 for a detailed justification of camp selection).
The camp selection drew from considerations of representativeness for the Somali Region and Ethiopia in general, as well as their coverage in previous studies.
Due to the emergence of the global COVID-19 pandemic at the beginning of 2020, data collection was not able to be completed as planned, which affected the level of comparison regarding certain aspects of the research questions.
3.3 Methodology
This study employs a mixed methods research design, combining qualitative data collected through expert interviews and a focus group discussion with a quantitative household survey. Both methodological components were designed to be of equal relevance to the research. Results were only fully integrated at the inferential stage; however, the qualitative findings from the interviews informed the questionnaire design. The different methodological approaches address separate aspects of the research, crosscutting the thematic areas.
The qualitative interviews shed light on the policy process as well as on the role, capacities and challenges of local governments in the CRRF implementation process by consulting different actors from the local to the international level. They consisted of semi-structured interviews with stakeholders and experts from Ethiopian and international public and civil society institutions that are involved in the CRRF process. They were based on topical guiding questions and were conducted at federal, regional and local levels in Ethiopia (including woreda and kebele). To better understand the perspectives of the affected communities, a focus group discussion was conducted with the Refugee Central Committee of Sheder refugee camp. With the informed consent of the interviewees, interviews were recorded, transcribed and coded for later analysis.
The quantitative household survey aimed to capture the status quo and perceptions about developments in the past year concerning the integration of refugees in the Somali Region.
The survey was set up to be representative of the refugee and host community in and around the refugee camps Sheder and Aw-Barre with a total of 2,000 respondents. Due to the COVID-19 interruptions in data collection activities, only data from 675 respondents from both refugee communities was collected. Within the selected communities, a random sample was drawn on the household level. To capture different experiences concerning the thematic areas within one household, which are likely to vary along characteristics such as gender or age, three persons per household were interviewed. These three persons were (1) the self-defined household head, (2) the main caretaker of children and (3) a randomly selected household member aged between 18 and 35. The further elaboration of the questionnaire highly benefited from the contextual expertise of local research partners and the feedback of the enumerators during the survey training before conducting the survey.