Last updated: 27th July 2015

The Recovery, Return & Reintegration(RRR) Sector, Sudan

Terms of Reference

  1. Background

The humanitarian community and the Government of Sudan (GoS), remain committed to providing lifesavinghumanitarian assistance and maintaining the capacity to quickly provide this assistance when new manmade emergencies or natural hazards occur.At the same time, there is an increased emphasis by national and international actors on the importance of early recovery.

Early recoveryis a multidimensional process of recovery that begins in a humanitarian setting. It is guided by development principles that seek to build on humanitarian programs and catalyze sustainable development opportunities. It aims to generate self-sustaining, nationally owned, resilient processes for post crisis recovery. It encompasses the restoration of basic services, livelihoods, shelter, governance, security and rule of law, environment and social dimensions, including the initial phases of the reintegration process of displaced populations.[1]The specific vulnerabilities created by displacement often only intensify with time and there is a need to assist displaced populations through resilience and recovery approaches.[2]

Beyond being a highly destabilising experience for IDPs themselves, the protracted crisis has had serious economic, political, environmental and security implications for the larger community in Sudan and has interrupted progress towards development objectives. While it is not possible to pursue full-scale recovery in all localities, where situations allow, it is critical to begin using early recovery approaches where possible in order to build expertise, learning, best practice and evidence to supportinterventions that are most effective and sustainable.

The Darfur Development Strategy acknowledges that, after more than a decade of humanitarian aid, the needs of many IDPs would be best met through more sustainable approaches that enable them to rebuild their lives within a context of protracted conflict in the regions of Darfur, and this strategy can also be applied in other regions that experiencing protracted crises such as South and West Kordofan and Blue Nile State. Furthermore, a policy emphasis on transition from relief to development, where possible, has been captured in the NationalIDP Policy, the latest National Strategic Plan, the interim-Poverty Reduction Strategy Programme (iPRSP), the UNDAF, the Doha Document for Peace in Darfur (DDPD) and the Darfur Development Strategy (DDS)[3]. The DDPD agreement gave rise to the creation of a Darfur Regional Authority (DRA) to oversee implementation of articles under the agreement that would ensure justice and reconciliation as well as compensation and return of IDPs amongst others. The establishment of the DRA can give impetus to recovery in the region and as such the sector works in close collaboration with theiras well as the Humanitarian Aid Commission (HAC).

To strengthen coordination of early recovery and make progress towards durable solutions, the Humanitarian Country Team (HCT) decided, primarily through the Inter-Sector Coordination Group (ISCG), to establish the RRR Sector to coordinate interventions and efforts to support theRecovery, Return, and Reintegration processes.[4] Moreover, the RRR sector will prioritize effective inter-agency partnerships, with tailored area-specific interventions to increase self-reliance and an inclusive sustainable development.

  1. Resilience, Early Recovery & Durable solutions

To reduce dependency on humanitarian aid, advance human development and enhance resilience of communities,all actors including local/national government and humanitarian and development actors require coordinated efforts.

To ensure sustainability and maximum efficiency of resources and reducing the element of dependency it is important to ensure that early recovery elements are incorporated into the planning of interventions related to recovery, return, and (re)integration processes from the very onset of the crisis. Supporting approaches that incorporate early recovery will assist in building the resilience of communities in the face of protracted crises, allow progress towards durable solutions for displaced populationsandlay the foundations for transition from relief to development.

The RRR sector plays a crucial role in this transition from relief to development and provides a specific focus on the important elements of humanitarian work that goes beyond the immediate response. In supporting humanitarian responses it is critical to ensure duty of care for communities as they return as communities to their place of origin, reintegrate in a nearby area or locally integrate in the area of displacement after the initial response to an emergency has concluded.

With emergency responses come interventions that may previously not have been in existence. While these services and supports help to ensure the safety and wellbeing of affected communities there can be negative outcomes. An early recovery approach positively contributes to averting the continued need for relief and/or mitigating against unintended negative impacts as a result of emergency responses.

Resolving both humanitarian and development challenges caused by protracted displacements requires a coherent and effective approach to make progress towardsachieving durable solutions. Principle 6 of The Guiding Principles on Internal Displacement stipulate in that “displacement shall last no longer than required by circumstances”. Drawing on existing international law, the right of internally displaced persons to a durable solution is articulated in the Guiding Principles 28-30. A Durable Solution is achieved when IDPs no longer have any specific assistance and protection needs that are linked to their displacement and they can be achieved through return (sustainable reintegration at the place of origin), local integration (sustainable local integration in areas where IDPs take refuge) or reintegration elsewhere in the country. The search for any of these Durable Solutions for IDPs should be understood as 1) a gradual, often long-term process of reducing displacement-specific needs, 2) a complex process that addresses humanitarian, development, reconstruction and peace-building challenges and 3) requiring a coordinated and timely engagement of different actors.[5]

  1. Target groups:

The RRR sector will coordinate its activities focusing on the below target groups.

  1. IDP Returnees

In some locations where improvements have occurred, spontaneous return of IDPs has taken place. To date, the Return and Reintegration Working Groups (RRWG), the Voluntary Return and Reintegration Committee(VRRC),Humanitarian HACIOM, and have verifiedspontaneous returns. The pace of returns, however, appears to have slowed since 2013 and it is likely that many of the returnees are moving between camps, border and return areas on a seasonal basis. Moreover, returnees continue to face challenges upon return, including lack of security, access to basic services, access to land, livelihoods opportunities and food security. The process of return is therefore challenged by limited resources to allow for a successful transition to pre-conflict livelihood patterns. Improved security,the provision of basic services and livelihood opportunities for returnees and those in return areas will be necessary to ensure long-term sustainability. This will require investment by the Government of Sudan with the support donors and while costly in the short term will be far less burdensome than continued emergency response and the impact of poor health, education and productivity. Host communities should also be considered when responding to the needs of returnees. To ensure that interventions to IDP returnees are coordinated and aligned with response to refugee (like) returnees, the sector will also closely liaise with the Refugee Multi-sector (RMS).

  1. IDPs for local integration

In addition to return processes, it is expected that a significant portion of the current IDPs will opt to locally integrate or reintegrate in nearby towns, cities and peri-urban areas to which they were displaced. The government acknowledges this likely scenario and recognizes the need to strengthen infrastructure and services to meet such a significant addition to the region’s urban population, and to promote developments that offer employment and other livelihood opportunities. Host communities should also be considered when responding to the needs of IDPs.

  1. Vulnerable migrants groups

Vulnerable migrants from crisis-affected countries who are in need of assisted voluntary return and reintegration services. These migrants are mostly Sudanese returnees living/working within the MENA region (CHAD, CAR, Libya, Syria etc.).

  1. Sector Objectives

The overall objective of the RRR Sector is to support linkages between humanitarian and recovery and development related efforts. To do this, the RRR Sector is working in collaboration and partnership with all stakeholders to support the process of recovery, return and reintegration through four sector objectives:

  1. A coherent, consistent coordination mechanism in place for resilience and recovery related activities and programmes targeting return and reintegration of IDPs, implemented by UN agencies and sectors, NGOs, and Government;
  2. The development of a standardised comprehensive databaseon return data & trends, needs and opportunities is supported. This should enable, inter alia, the analysis of development risks and vulnerabilities to help guide programme design of return projects submitted to the Humanitarian Response Plan with recovery focus through a multi-sectoral approach;
  3. Capacity of sector partners developedand the integration of cross-cutting issues such as gender and environment tostrengthen resource mobilization for resilience, and recovery[6] related activities supported.
  4. The development and implementation of a national- owned Durable Solutions Strategyfor IDPs through the provision of technical support to policy development, and advocacy;

These objectives are opportunity-focused and ultimately result in a reduction of urgent and critical humanitarian needs by taking an integrated approach to build on positive gains from emergency interventions.

  1. Linkages with objectives in Strategic Plans and policies.

Key objectivesas reflected in the National Plans (IDP Policy), Humanitarian Response Plan (HRP), United Nations Development Assistance Framework (UNDAF), Darfur Development Strategy (DDS) that are directly linked and supportive to the RRR sector objectives are:

  • Fostering of an environment conducive to national unity and peace dividends are delivered for sustainable Recovery, Return, and Reintegration ensuring that IDPs, refugees and their host communities have access to improved basic services and sustainable livelihoods.(UNDAF/Outcome8) (National IDP Policy)[7]
  • Increased access to basic services and utilisation of comprehensive health and nutrition servicesthrough strengthening community-led initiatives and developing preparedness and disaster risk reduction strategies/initiatives. (HRP/SO1) (DDS/FaST II)
  • Improved protection of returnees through multisector approach and coordination with government partners to identify affected people, and to ensure that affected people are fully and timely involved in processes of return and reintegration and security and land issues in return areas are addressed. (National IDP Policy) (HRP/SO2) (DDS/FaST I, II)
  • Economic self-reliance and social reintegration of conflict- affected communities’improved and long-term dependence reduced, ensuring self-sufficiency within return areas and protracted IDP communities through capacity development and community participation. (National IDP Policy) (HRP/S04) (DDS/FaST II)
  • Increased access to clean, reliable and affordable energy in the Darfur Regionand vulnerabilities to climate risks are reduced (UNDAF/Outcome 2) (DDS/FaST II, III)
  • Capacity Building of the Darfur Regional Authority (DRA), and Humanitarian Aid Commission (HAC) in return, reintegration and urbanisation concerns in Darfur. (DDS/FaST)
  1. Coordination structure

The RRR Sector Coordination meetings represent the formal forums for discussion and decisions on issues related to recovery, return and reintegration that affect partners. The sector members will convene on monthly intervals, at the federal and State level with extra-ordinary meetings called when necessary. The sector is active in Khartoum and will be rolled-out/re-activated in all 5 Darfur States, South Kordofan and Abeyei. The sector leads and co-leads at National level will follow up with the sector leads and co-leads at State-level through regular bi-weekly follow up teleconference, when necessary ad-hoc meetings will be conducted and information and meeting minutes will be shared through email and will be saved in the RRR sector dropbox to which all sector members will have access.

The meetings should maintain components of short term and long-term needs and responses. All members should continue playing an important and active role under the leadership of sector and the relevant Government Counterpart.Members are agencies and organizations whose mandate and services are pertinent to the specific Return, Recovery and Reintegration activities.[8]Membership of the sector entails that participants commit to supporting the sector’s objectives and activities laid out in the terms of reference. Depending on capacity in the State, sector members include:Darfur Regional Authorities (DRA); Voluntary Return and Resettlement Commission (VRRC); The Humanitarian Aid Commission (HAC); Ministry of Finance (MoF); Line ministries (MoE, MoH, WES, etc); UN agencies and UNAMID, including UNHCR and UNOCHA and National and International NGOs. There are also several examples from other countries where the private sector played a key role in negotiating an end of conflict and contributing to the recovery of a country.

  1. Roles and responsibilities[9]
  1. Sector Lead & Co-Leads (HAC, DRA, UNDP, IOM, CRS)
  • Identify the relevant sector members and secure their commitments to the sector;
  • Agree roles and responsibilities within the sector, identify focal points for specific issues where necessary and develop the sector work plan, and Terms of Reference;
  • Represent the Sector at key inter-sectoral meetings and processes
  • Establish and maintain appropriate coordination mechanisms and tools
  • Lead the identification and tracking of gaps and overlaps, actively working with all Sector members to find appropriate, realistic and timely solutions as well as synergies
  • Lead sector planning and strategy development, including annual planning and reporting, and providing technical expertise for the development of durable solutions strategy; support sector members with the development of SMART objectives and indicators for recovery, return and reintegration activities and driven by Strategic plans.
  • Facilitate and organize joint field visits to areas of high return to assess the needs and coordinate for adequate response.
  • Periodically review the sector strategy as well as the prioritization of geographic areas of intervention
  • Ensure adequate information management on return data and trends, agree on the different types of return and set clear criteria to follow (seasonal return, permanent return, spontaneous versus organised, refugee-(like) return, etc.)
  • Conduct gap analysis, map the needs (using 4Ws), formulate priorities and sharethe outcomes with HCT for advocacy and with other relevant partners, including national authorities and sector leads for coordinated response on recovery, return and reintegration;
  • With the assistance and support of the Resident Coordinator and relevant Government partner, advocate for the mobilization of resources
  • Facilitate and guide the establishment of an adequate monitoring mechanisms to review impact of interventions and its progress against agreed implementation plans
  • Support partners in building local capacity and coordinating with all partners; identify requirements for training and capacity building on early recovery, resilience building programming, durable solutions for IDPs and information management;
  • Ensure integration of priority cross-cutting issues, as appropriate
  1. Sector members
  • Attend and actively contribute to Sector meetings and coordination
  • Share relevant data and information on a timely basis, participate in planning activities and contribute to policy and strategy development,
  • Share assessments from respective geographic and programmatic areas of responsibilities and flag problems/gaps as they arise; and share success stories/lessons learned/best practices
  • Understand and address fully the cross-cutting issues utilizing early recovery, participatory, area- and community based approaches;
  • Support with gap analysis, mapping of needs, formulation of priorities and sharing of the outcomes with other relevant partners, including national authorities and sector leads for coordinated response on recovery, return and reintegration;
  • Advise the Sector on issues connected with resource mobilization and advocacy, including providing information regarding other secured funding to support the Sector Coordinator in maintaining an accurate overall sector perspective and effectively advocate for additional funding when available
  • Build local capacities whenever possible and promote training of national partners, including active participation in trainings organized by the Sector Leads.

1

[1]Guidance note on Early Recovery, CWGER, Geneva, as of April 2008

[2]Joint Strategies for supporting Durable Solutions to Displacement, draft, GCER/TWG-DS, 6 May 2015

[3] Presented by the Government and endorsed by international partners in Doha in April 2013

[4]The creation of the RRR sector does not replace the need for early recovery and resilience approaches that should be integrated by all sectors in humanitarian response.

[5]Guiding Principles on Internal Displacement

[6]In the context of Sudan, recovery has to be seen to exist in a contiguum in which a whole range of conditions exists at the same time, from saving lives to enhancing resilience and supporting early recovery.

[7]Sudan National IDP Policy, IDP and returnees National Centre, Ministry of the Interior; Volunteer and Humanitarian work (organization) Act 2006

[8]Members are admitted through due diligence based on their potential contribution to the mandate of the sector. Membership may be revised according to the situation on the ground and be amended if necessary as the situation evolves.

[9]Will be reviewed on an annual basis