DARFUR LIVELIHOODS PROGRAMME. Mapping and Capacity Assessment of Civil Society Organizations (CSOS) in Darfur

Transcription

1 United Natins Develpment Prgramme DARFUR LIVELIHOODS PROGRAMME Mapping and Capacity Assessment f Civil Sciety Organizatins (CSOS) in Darfur Prepared by: Partners in Develpment Services (PDS)

2 CONTENTS EXECUTIVE SUMMARY. 3 SECTION ONE: INTRODUCTION Prelude Study Ratinale Methdlgy.. 9 SECTION TWO: THE CONTEXT OF CSOs The cncept CSOs in Sudan: An Overview The Institutinal Envirnment f CSOs in Sudan Darfur Cntext f CSOs. 15 SECTION THREE: MAP AND PROFILE OF DARFUR CSOS, General Map and Prfile Target grups CSOs, Peace Building and Cnflict Management. 19 SECTION FOUR: CAPACITIES OF DARFUR CSOS Human Resurces Accuntability Systems Organizatinal Management Gvernance Systems Reprting Strategic Planning and Annual Wrk Plans Partnerships Funding Financial and Accunting Systems Operatinal and Lgistical Capacities Training.. 27 SECTION FIVE: CHALLENGES AND CONSTRAINTS TO CSOs Issue f Capacities The Institutinal Envirnment Gegraphical and Scial Outreach Plitic Cultural Plarizatin. 29 SECTION SIX: POTENTIAL PARTNERS TO UNDP LIVELIHOODS AND PEACE BUILDING PROGRAMME Issue f Apprach Prequalificatin. 30 SECTION SEVEN: FRAMEWORK FOR CAPACITY DEVELOPMENT General Enabling Envirnment Organizatinal Level.. 34 SECTION EIGHT: CONCLUDING REMARKS 35 Bibligraphy. 38 1

3 TABLES Table 1: Prfile f Darfur CSOs.. 17 Table 2: CSOs by interventin fcus.. 18 Table 3: Technical capacities f CSOs as perceived by partners 22 Table 4: CSOs by accuntability indicatrs 22 Table 5: CSOs by perceived rganizatinal management prcedures. 23 Table 6: Financial capacities f CSOs as perceived by partners.. 26 Table 7: Prpsed clusters f CSOs.. 31 Table 8: Distributin f prequalified CSOs by state and categry f fcus.. 31 Table 9: Prequalified ptential partners t UNDP Livelihds Prgramme. 32 ANNEXES Annex 1: Darfur States: CSOs general prfile. 40 Annex 2: Mapping and capacity assessment wrkshp reprt: Khartum Based Darfur CSOs. 51 Annex 3: Mapping and capacity assessment initial fieldreprt 63 Annex 4: Methdlgical framewrk 73 Annex 5.A: Data Cllectin Frm (1) 83 Annex 5.B: Data Cllectin Frm (2) 84 Annex 5.C: Data Cllectin Frm (3) 88 Annex 6: Study Terms f Reference TOR. 90 2

4 EXECUTIVE SUMMARY This study is cmmissined under the UNDP Prject Enhancing Livelihd Opprtunities and Building Scial Capital fr New Livelihd Strategies in Darfur. The prject seeks t supprt fundatinal activities fr the rebuilding f livelihds f Darfurian cmmunities. The bjectives f the study are t map the prfiles and experiences f CSOs invlved in livelihd issues in Darfur regin, t assess the capacities f these structures and t recmmend areas f interventins fr capacity develpment f CSOs in Darfur. The study was based n a highly participatry, cnsultative and crss learning apprach using individual and grup interviews, cnsultatin wrkshps, and questinnaires; this is besides a rigrus desk review f available secndary data. The initial cnsultative wrkshp held with Darfur CSOs based in Khartum and participatin in the training wrkshps fr CSOs in Nyala, rganized by OCHA, prved very valuable fr infrming the study and sharpening f understanding abut CSOs in Darfur. Darfur CSOs have lng histry. The drught and famine disaster f the mid 1980s that hit Darfur harder than any ther place in Sudan cnstitutes a land mark in the emergence and grwth f CSOs. The recvery prcesses since early 1990 undertaken by UN agencies, especially UNDP, and INGOs, and infrmed by the newly emerging cncept f sustainable develpment centred n the philsphy f participatin led t the emergence f cnsiderable number f CSOs. Darfur cnflict since 2003 has resulted in dramatic expansin in the size and scpe f Darfur CSOs with 65% f the rganizatins emerged directly as a result f the cnflict. At present there are 241 registered CSOs distributed unevenly between Nrth Darfur (104) Suth Darfur (80) and West Darfur (57); this in additin t 232 Darfur related CSOs based in Khartum. CSOs in Darfur are highly centralized in the urban areas, especially the fur majr twns f Fashir, Nyala, Geneina and Zalengi. Accrdingly, gegraphical and scial ut reach have significantly minimized. Rural-based rganizatins culd generally be categrized as CBOs established mstly by UNDP and INGOs during the 1990s and are fund mainly in eastern Darfur (Um Keddada) and Suth Darfur (Idd El Fursan). Darfur CSOs are highly divided alng ethnic/tribal and gegraphical lines with many f them hld the name f gegraphical lcatin r tribal grup; nearly all tribal grups in the regin have their wn civic structures. Plitical plarizatin is als cnspicuus and labeling f the self and the thers is quite cmmn reflecting deep gulf f mistrust. This explains the very small number engaged directly with the IDPs in the camps. Darfur CSOs are engaged in a wide spectrum f activities with particular fcus n humanitarian interventin with very limited fcusing n livelihds and peace building issues. This is explained by the main surce f funding t CSOs which is the internatinal cmmunity whse presence in Darfur is principally humanitarian; this has created CSOs in Darfur as essentially dnr-driven structures. Plitical activism, advcacy and resurce mbilizatin, hwever, remain the fcus f Khartum-based Darfur CSOs. The majrity f Darfur CSOs culd be described as small size rganizatins where 67.2% have a permanent staff size f 1-7 persns; ut f this 38.8% have staff size f 1-3 persns. Medium size rganizatins with permanent staff f 8-15 persns 3

5 accunt fr 25.4% while thse f 15 r mre represent 7.5%. The majrity f the rganizatins (51%) with vlunteers accunt fr almst 31% f the ttal staff. Peculiar feature f Darfur CSOs is the presence f large number f females in the leadership f the rganizatins. Field data revealed that 57% f the rganizatins are led by females cmpared t 43% led by males. The gender cmpsitin f CSOs staff shws that females accunt fr 39% f the staff members reflecting a cmparatively narrwer gender gap cnsidering the verall gender cmpsitin f labur frce in gvernment institutins and the private sectr in Sudan. Althugh sme aspects f capacity have been acquired ver years, Darfur CSOs suffer acute capacity deficiencies. The limited available management and administrative skills have been acquired principally thrugh trail and errr practices. Organizatinal, advcacy and scial mbilizatin skills are als minimal. Technical capacities in terms f relevant sectral expertise, capability t adapt t change, and cnductin f need assessments and preparatin f technically sund reprts is described as pr if nn existent. Accuntability systems measured in terms f financial systems and management, persnnel plicy, mnitring and evaluatin systems, participatry decisin making, resurce mbilizatin strategies, reprting system, strategic planning, and regular meetings tend t be very weak. Only 29% f the CSOs surveyed tend t apply the ten accuntability indicatrs measured; nly 25.4% f the rganizatins have identified management structure with management tends t be an ad hc prcess. Understanding f partnership is als distrted as it is always cnceptualized and viewed frm funding perspective. Darfur CSOs are faced by numerus challenges and cnstraints that impede their perfrmance and effectiveness. These challenges are f internal and external nature. Internal challenges relate directly t capacities f these rganizatins including managerial, rganizatinal and gvernance, financial, representatin and accuntability systems. Weak capacities and lw levels f accuntability and credibility cmpunded by insufficient prmtin f their gd wrk significantly restricted the pprtunities fr effective partnerships and sustainable access t resurces. External cnstraints are manifested in the inapprpriate institutinal envirnment, restricted gegraphical ut reach, the highly pliticized cntext f Darfur and the apparent lack f trust between the majr actrs including gvernment, internatinal cmmunity and CSOs. Lack f clarity and cherence f the institutinal set ups, cnfused Federal and state respnsibilities ver registratin f NGOs, lengthy screening prcesses and restricted rights f IDPs t rganize and t establish their wn civil sciety grups are typical cnstraints. HAC in the three States demnstrates cmmn capacity weaknesses. Prblems f data and infrmatin management, insufficient understanding f humanitarian principles, weak fllw up and mnitring and the inefficient management f the vluntary sectr are recgnizable manifestatins. HAC is als widely perceived as security bdy rather than being a humanitarian neutral and impartial institutin. The relevance f HAC current mandate and capacities are als questinable, especially when peace cmes. The anticipated pssible scial and plitical changes that will fllw any peaceful settlement and the emerging new realities f recvery make the revisin f HAC mandate and capacities tp pririty The highly pliticized cntext f Darfur and the apparent tendencies f labeling, categrizatin and plitical manipulatin have resulted in deep gulf f mistrust between the three majr actrs in the regin, amng CSOs themselves and als 4

6 between IDPs and CSOs. This has created a vicius circle f limiting factrs that needs t be genuinely and effectively addressed t lead the transitin t recvery and peace building when peace cmes. In spite f the generally pr capacities there are sme rganizatins that demnstrate relatively gd strengths and reasnable cmpetencies. Imprtant amng these strengths are the knwledge f the cntext, cverage f many gegraphical lcatins, wide range f cnstituencies and the demnstrated ptentials fr imprvement. Sme rganizatins have als demnstrated remarkable resilience ver time althugh have been cut ut frm direct supprt. Applying prequalificatin indicatrs f gvernance, accuntability, gegraphical and scial utreach, recgnitin by cnstituencies and inclusivity the assessment and n the basis f brad categrizatin managed t prequalify 67 CSOs representing 27.8% f Darfur-based CSOs and distributed unevenly between Nrth Darfur (32), Suth Darfur (21) and West Darfur (16). This in additin t 28 CSOs based in Khartum. Capacities and cmpetencies f CSOs at present, hwever, remain inapprpriate t undertake and deliver effective and meaningful livelihds interventins and cmmunity driven recvery prcesses. A recmmended apprach t vercme that and t enhance engagement with CSOs is t slicit and cluster number f rganizatins in a way relevant t UNDP mandate and the enhancement f its ut reach while serving the verall bjectives f the CPAP prgramme. This shuld be steered n the basis f encuraging the culture f wrking tgether, each with its strategic niche and cmpetencies, while bringing supprt rganizatins t wrk with them. Such an apprach will mre likely make a difference as it will help fstering partnerships between the varius CSOs and als with ther actrs; sharing f knwledge and crss learning prcesses; establishing a unified system f capacity building and develpment; widening the currently limited gegraphical and scial ut reaches f CSOs and internatinal assistance; enhancing effectiveness and cnslidatin f impacts; prmting cmmunicatin and trust building while systematically minimizing existing tensin and plarizatin thrugh wrking n cnnecting factrs and shared interests that are prerequisites fr institutinalizatin f capacity develpment, cnstitutin f trust building and prmtin f scial peace. The study recmmends a tw level capacity develpment framewrk: enabling envirnment level and rganizatinal level. Enabling envirnment level requires fstering f effective partnership and engagement with related gvernment institutins, especially Ministry f Finance and Ecnmic Planning, Planning Units in different Ministries and HAC in rder t wrk n legislatins and by-laws, plicy framewrks, peratinalizatin f plicies and cntrl systems, engagement frums fr the enhancement f mutual understanding, trust building and exchange f infrmatin and capacity develpment f partner institutins. The rganizatinal level addresses the technical and functinal capacities f CSOs in terms f rganizatinal and management capacities, technical training fr prfessinal cadre including dialgue and facilitatin skills and expanding f ut reach and influence thrugh scial mbilizatin, civic educatin, scial prtectin, netwrking and advcacy and peace building T serve the abve UNDP is recmmended t urgently and effectively engage with CSOs and als t rganize and crdinate the capacity building effrts f ther internatinal actrs t enhance smth transitin frm humanitarian t recvery and lng term develpment in Darfur when peace cmes. Accrdingly, UNDP will lead 5

7 thematic areas within its fcus as identified in the CPAP dcument. Cnstituting f the Livelihds Prgramme within a brad Darfur reginal framewrk will invlve investment and supprt fr the creatin f an enabling envirnment, cnflict reslutin and peace building, human resurces develpment, gd gvernance f CSOs, and engendering the recvery interventins. There are als thusands f Darfur intellectuals in the Diaspra and wh are linked t the cause f Darfur in many ways; they are invlved in lcal and internatinal initiatives ver Darfur as well besides being linked t many civil sciety grups in Darfur. Such individuals culd cntribute psitively and cnstructively t recvery and develpment in Darfur when peace cmes and, therefre culd be mapped and apprached thrugh UNDP TOKTEN Prject. The mapping and characterizing f CSOs grups f the rebel mvements culd als be tried and their capacity develpment needs identified fr the purpses f cnstructive future engagements and integratin in the brad spectrum f Darfur CSOs when peace cmes. Research Institutins and Universities, especially Peace Centres in the three Darfur States remain active actrs especially in the fields f training and capacity develpment in relatin t cnflict analysis and peace building besides availing platfrms fr public discussin and dialgue. These Centres als had established links t UNDP thrugh the Rule f Law prject. Because f their apparent limited capacities these centres need t be capacitated and empwered t play mre active and cnstructive rle as ptential partners t UNDP Livelihds, Peace Building and Rule f Law and Gvernance Prjects. Finally it shuld be emphasized that in spite f the tragedies assciated with the cnflict in Darfur the cnflict has als initiated a remarkable prcess f scial rganizatin that cnstitutes an imprtant asset fr prmting scial change in Darfur if genuinely utilized. In this respect effective engagement with capacitated CSOs is an imprtant entry pint fr the realizatin f a better future fr the peple f Darfur. In this respect it is wrth mentining that there are many Darfur individual activists (men and wmen) wh are nt really rganized under specific civil sciety structures. They are cncerned individuals wh are engaged at natinal, reginal and internatinal initiatives ver Darfur and wh are useful fr big strategic issues such as netwrking, lbbying and advcacy. Such individuals culd be smartly mapped, apprached and addressed thrugh issue-based netwrking. SECTION ONE: INTRODUCTION 1.1 PRELUDE There has been a dramatic expansin in the size, scpe, and capacity f civil sciety arund the glbe ver the past decade aided by the marked shift in develpment paradigm, prcess f glbalizatin, the expansin f demcratic gvernance and telecmmunicatins, and increased ccurrence f disasters. Civil Sciety 6

8 Organizatins CSOs have als becme imprtant actrs fr pverty reductin, delivery f scial services, implementatin f emergency relief and ther humanitarian interventins, factring the views f the pr int plicy decisins, imprving public transparency and accuntability f develpment and recvery activities while cntributing t the enabling envirnment fr gd gvernance. CSOs have als attracted greater public scrutiny as their size, imprtance and influence grw. Dnrs, gvernments and citizens are increasingly demanding that CSOs demnstrate they are well-managed, cst-effective, transparent, publicly accuntable, and actively engaged in lcal develpment and capacity building. This study is cmmissined under the UNDP Prject Enhancing Livelihd Opprtunities and Building Scial Capital fr New Livelihd Strategies in Darfur. The prject seeks t supprt fundatinal activities fr the rebuilding f livelihds f Darfurian cmmunities. It cnsists f five fcus areas; (1) vcatinal training fr emplyment; (2) capacity building f NGOs and CBOs; (3) future riented skills training fr yuths; (4) establishment f a web based livelihd and natural resurce management platfrm; and (5) restratin f ecnmic rganizatin thrugh value chain analysis. The study prvides mapping and assessment f Darfur civil rganizatins. The bjectives f the study, as specified in the TOR are: (i) T map the prfiles and experiences f NGOs and CBOs invlved in livelihd issues in Darfur regin; (ii) T assess the capacity f CSOs using the UNDP capacity assessment tl and ther additinal tls identified by the cnsultants; and (iii) T recmmend areas f interventins fr capacity develpment f CSOs in Darfur. 1.2 STUDY RATIONALE The study is directly linked t UNDP Cuntry Prgramme Actin Plan CPAP which fcuses n three thematic areas, namely: (i) Pverty reductin HIV/AIDS and enhancement f MDGs; (ii) Fstering and cnslidatin f demcratic gvernance; and (iii) Crisis preventin, cnflict management and recvery. UNDP fcus cannt be achieved withut rbust and vibrant CSOs. UNDP fcus n sustainable human develpment that places peple at the centre f the develpment prcess can nt be achieved withut the rbust engagement f civil sciety and its rganizatins. Given the cllective pwer f CSOs in building scial, ecnmic and plitical agenda bth lcally and glbally it is clearly evident that strengthening partnerships with CSOs is crucial if UNDP is t be a relevant and effective develpment player. UNDP cuntry ffice field-assessments and cnsultatins in Darfur since 2006 revealed the existence f pprtunities t enhance livelihds and natural resurce management in the regin. Building capacity f bth civil sciety and key institutins t lay the fundatin fr future ecnmic recvery and peace building are prerequisites fr cnstructive engagement. Given the immense challenges facing Darfur, it is imperative that when the cnflict is reslved the three states in Darfur shuld be incrprated int lnger term recvery and develpment plans. This requires articulated capacity develpment and fstering f strategic partnership with CSOs. This falls at the heart f the UNDP mandate. 7

9 The apparent discnnect between humanitarianism and recvery. The current fcus in Darfur is n humanitarian issues with apparent discnnect between humanitarianism and recvery issues. UNDP mandate f guiding smth transitin frm humanitarian t recvery requires investment in service delivery mechanisms and strengthening f partnerships with CSOs.. Darfur crisis has been assciated with prliferatin f CSOs that have becme imprtant actrs in the varius spheres f interventins in the regin. Hwever, in all these spheres Darfur CSOs face numerus challenges t prmte meaningful actins twards cmmunity wned and driven recvery prcesses. The rle f Civil Sciety Organizatins in develpment has been recgnized glbally at the level f the UN. In the Reprt f Secretary General s High level Panel n Delivering as One (dated 9 Nvember 2006), it has been indicated that Civil sciety rganizatins can drive the UN s develpment agenda frward and that they are indispensable partners in delivering services t the pr, and they can catalyze actin within cuntries, mbilize brad-based mvements and hld leaders accuntable fr their cmmitments. While gvernments remain the primary interlcutrs fr cuntry-level engagement with the United Natins, civil sciety and private sectr inputs int the preparatin f the One Cuntry Prgramme are imprtant t ensure full natinal wnership and relevance. The Reprt nted that cnstructively engaging with civil sciety is a necessity fr the United Natins, nt an ptin. Fr UNDP t deliver the develpment assistance as utlined in the CPAP, is expected t significantly enhance participatin f civil sciety in public dialgue, plicy making and develpment wrk. Meaningful engagement by CSOs in such activities is an essential facet f demcratic participatin and accuntability, develpment f pr-pr plicies, as well as the design and delivery f recvery and develpment assistance prgrammes. CSOs are therefre a crucial resurce, cnstituency and partner fr UNDP in advancing sustainable human develpment gals and principles The UNDP fcus n peace building and prmtin f gd gvernance cannt be achieved withut rbust engagement and partnerships with CSOs. UNDP needs t capitalize n the lcal and cntextual knwledge f CSOs and at the same time, given the security situatin, use them t increase its gegraphical and scial ut reaches. 1.3 METHODOLOGY: Athugh the cncept f CSOs encmpasses a wide range f actrs (see sectin 2.1) the study, guided by the TOR, uses the cncept narwly t refer t structures registered as SCOs under HAC Humanitarian Law Accrdingly, grups such as cultural grups, trade unins, faith-based rganizatins, prfessinal assciatins, sprt assciatins, self-help grups and the neumerus lcalized village develpment cmmittees are beynd the scpe f this study. This als applies t internatinal rganizatins registered elsewhere utside Sudan. 8

10 The study was based n a detailed methdlgical framewrk significantly infrmed by UNDP Capacity Assessment Tlkit. The CSOs Assessment Framewrk (Annex 4) was shared, discussed and agreed upn with UNDP prir t the cmmencement f the study. Strictly guided by the bjectives and deliverables spelled ut in the study Terms f Reference (TR) (Annex 6). The methdlgical framewrk was triangulated and cmplemented by cnventinal quantitative appraches and qualitative participatry appraches t data cllectin. These invlved: a. Desk review: A cmprehensive desk review f available secndary infrmatin including relevant internal dcuments and literature availed by UNDP was carried ut. The desk review was intended t infrm the study methdlgy and t chart the nature and genesis f Sudanese CSOs, their characteristics and institutinal envirnment. Relevant data n Darfur CSOs althugh scanty and scattered was als reviewed and cnsulted. The review was als extended t include general mapping f Khartum-based Darfur CSOs/NGOs while explring and identifying the main challenges and cnstraints t CSOs. Specific dcuments reviewed were: (i) Darfur Jint Assessment Missin (DJAM) reprts (2007); CPAP ; UNDP Reginal Strategy (2009); BCPR missin reprts (2008, 2009); UNDP guiding ntes n Capacity Mapping and Assessment f CSOs; UNDP Darfur Livelihd Prgramme (2009); Intrductin t UNDP Capacity Assessment Methdlgy (2009); the Wrld Bank Guide fr Engagement with CSOs (2008) and UNDP Practices Areas and CSOs (2009). Methds: As stipulated by the methdlgy framewrk the participatry apprach was emplyed fr the generatin f primary data using the fllwing techniques: a. Cnsultative meetings and wrkshps b. Individual interviews c. Grup interviews d. Fcused grup discussins e. Participatry bservatin Semi-structured interviews and cnsultatin meetings: Semi-structured interviews and cnsultatin meetings were held with the varius stakehlders and partners t CSOs in El Fasher, Nyala, Gineina and Zalingei. The meetings invlved: staff f CSOs in the three States capitals; Gvernment authrities (senir staff f ministries f Scial Welfare, HAC fficials); internatinal NGOs in Darfur three States (Practical Actin, Oxfam America, FAR, CONCERNS, Wrld Visin, Nrwegian Church Aid, SAMARTIAL BURSE, War Child and Justice Africa); UNDP staff in the three States; UN Agencies (UNICEF, UN HABITAT, UNEP, WHO, FAO, OCHA); OCHA Frum f NGOs; traditinal authrities; Lawyers Unin; Culture and Develpment Grup; and CSOs grups in Darfur and Khartum. In the prcess, HAC registratin lists f CSOs in Darfur three States were cllected, screened and validated in cllabratin with HAC staff. Cnsultatin wrkshps in Darfur: Thrugh facilitatin by HAC and Suth Darfur Organizatins Netwrk (SDON), an umbrella netwrk fr 50 Darfur CSOs, a ne-day cnsultatin wrkshp was rganized in Nyala as part f the mapping and assessment prcess. The wrkshp was attended by 78 rganizatins including ld and new nes. Besides the mapping exercise a participatry analysis f CSOs in terms f existing capacities, strengths, cnstraints and challenges was undertaken. 9

11 Questinnaires T satisfy the demands fr bth quantitative and qualitative data, three Frms (Annex 5) targeting different stakehlders were cnstructed and used: Frm 1 fr establishing the prfile f CSOs; Frm 2 fr detailed capacity assessment infrmatin; and Frm 3 a semi- structured interview with different stakehlders. Frm 2 which fcusing n main capacity issues was filled by a randm sample frm the CSOs in the Darfur three States. Mre detailed emphasis was allcated t CSOs relevant t UNDP mandate and fcus areas. A sample size f 67 CSOs representing 26% f the CSOs frmally registered at HAC and 44% f the Organizatins accessed in the three States during the mapping prcess (Annex 1) was cvered. Prfile f sampled CSOs a. by Gegraphical distributin El Fashir Niyala Geniena Zalengi b. CSOs by type CBO NGOs Cultural/media grups C. By date f registratin Befre After The sample was distributed gegraphically between the fur main twns f El Fasher (23.9%), Nyala (31.3%), Geneina (22.4%) and Zalingei (22.4%). On anther basis 25.4% are classified as CBOs, 68.7% as NGOs and 6.0% as cultural and media grups. Classificatin by date f registratin revealed that 3.0% were registered befre 1970 indicating lng histry f Darfur CSOs. The size f CSOs expanded largely during the 1980s mstly because f the drught and the tragic famine disaster during that time. Remarkable grwth, hwever, tk place during perid and this culd be attributed principally t UNDP prject f Area Develpment Scheme (ADS) in Suthern Darfur (Idd El Fursan area) and Nrthern Darfur (Umm Kaddada area) The ADS, grunded in the philsphy f cmmunity participatin and wnership, initiated the establishment f large number f cmmunity based rganizatins CBOs. The majrity f CSOs (52.2%) are the prduct f the current crisis in Darfur that started in On the ther hand 47%f the sampled rganizatins classify themselves as engaging in humanitarian and recvery interventins and prgramming, 19% their main fcus is emergency humanitarian interventins with recvery and develpment being the fcus f the remaining 34%. Nevertheless, the distinctin is prgrammatically vague since the driving frce fr their classificatin is availability f funding and resurces. Khartum Cnsultative wrkshp: A ne-day cnsultative wrkshp in Khartum was rganized in cllabratin with Darfur Develpment and Recnstructin Agency (DRA), Darfurian civil sciety rganizatin with visible and recgnizable presence in bth Darfur and Khartum. Participants were 35 individuals representing the diversity f a bigger audience f Khartum-based Darfur CSOs. The wrkshp was grunded in a highly participatry and crss learning apprach using bth plenary and grup wrk techniques. A sub-reprting cmmittee was als set up t summarize recmmendatins and capacity building pririty areas. The Wrkshp prved extremely useful in sharpening understanding f Darfur CSOs and in clarifying the relatinship that exists between Khartum and Darfur based rganizatins (Wrkshp reprt, Annex 2). The Wrkshp als prved very valuable in the undertaking f the field survey (field reprt Annex 3). 10

12 Participatin in OCHA Capacity Building Wrkshps: An pprtunity fr deeper understanding and grasping f the capacities f Darfur CSOs was furnished by the 5 training wrkshps fr CSOs rganized by OCHA in Nyala in Octber 2009 and facilitated by 2 members f the study team. The training fcused n Gender issues; principles f humanitarian wrk; fund raising; Netwrking and partnership. Extended fr tw weeks the training was attended by mre than 100 participants frm SDON. Issues f CSOs capacities, cnstraints and challenges were critically assessed. Classified by date f establishment 53% were established and registered after 2003 and 30 % during perid; the remaining 17% date back t the perid befre 1990; this has in turn validated the general prfile f the sampled CSOs. Incrprating Cmments n Draft Reprt The study benefited very much frm the very cnstructive cmments n the draft reprt received frm UNDP and HAC 1. The incrprtated cmments prvided valuable in put fr fine-tuning and finalizatin f the reprt. SECTION TWO: THE CONTEXT OF CSOs 2.1 THE CONCEPT Civil sciety refers t the arena f uncerced cllective actin arund shared interests, purpses and values. In thery, its institutinal frms are distinct frm thse f the state, family and market, thugh in practice, the bundaries between state, civil sciety, family and market are ften cmplex, blurred and negtiated. Civil sciety cmmnly embraces a diversity f spaces, actrs and institutinal frms, varying in their degree f frmality, autnmy and pwer. Civil scieties are ften ppulated by rganizatins such as registered charities, develpment nngvernmental rganizatins, cmmunity grups, wmen's rganizatins, faith-based rganizatins, prfessinal assciatins, trades unins, self-help grups, scial mvements, business assciatins, calitins and advcacy grup (Wrld Bank 2008). Summarized by Abu Sin (2008) civil sciety is distinct arena frm the state and the market where peple prmte their cmmn interests and seek t shape gvernance and plicies withut the prmise f cmmercial prfit r fficial pwer. Fr UNDP (2009) civil sciety is An arena f vluntary cllective actins arund shared interests, purpses and values distinct frm families, state and prfit seeking institutins. A key feature f this definitin is the cncept f civil sciety as an arena, a term used t describe the space where peple cme tgether t debate, assciate and seek t influence brader sciety. Cnceptualizatin f civil sciety as an arena, accrding t Abu Sin (2008) places emphasis n the rle f CSOs as prviders f public space in sciety, agents f scial transfrmatin, prmters f gd gvernance and a site f alternatives. 1 Valuble cmments n draft reprt were received frm: Aden Ali, Head, Nyala Field Office, UNDP; Daisy Mukarakate, Livelihds Prject Manager, Darfur; Musa Ibrahim, Prgramme Officer, CPRU, UNDP; Yusuf Abbakar, HAC; Asmaa Shalabi, Prgramme Specialist, CPRU, UNDP; Elhabib Hamdk, Livelihds Prject Officer, West Darfur; Mr. Akhtar Hamid, Prject Manager, Livelihds Prject, Kassala, and Simn Little, Darfur Cmmunity Peace and Stability Fund, UNDP. 11

13 In UNDP, the term civil sciety includes the full range f frmal and infrmal rganizatins that are utside the state and the market including scial mvements, vlunteer invlving rganizatins, mass-based membership rganizatins, faith-based grups, NGOs, and cmmunity-based rganizatins, as well as cmmunities and citizens acting individually and cllectively (UNDP 2009). UNDP interest in frging and fstering relatinship with CSOs stems frm many cnsideratins, including: The United Natins Charter gives UNDP a pwerful mandate t wrk with civil sciety rganizatins (CSOs). At the Millennium Summit 2000, the Secretary- General reaffirmed the centrality f civil sciety and its rganizatins t the missin f the United Natins in the twenty-first century: Nt nly d yu [civil sciety rganizatins] bring t life the cncept f We, the Peples, in whse name ur Charter was written; yu bring t us the prmise that peple pwer can make the Charter wrk fr all the wrld s peples in the twenty-first century. Equally, the UNDP fcus n sustainable human develpment that places peple at the centre f develpment cannt be achieved withut the rbust engagement f civil sciety and its rganizatins. Given the cllective pwer f CSOs in building scial, ecnmic and plitical agendas bth lcally and glbally it is clear that strengthening partnerships with CSOs is crucial if UNDP is t remain a relevant and effective develpment player. UNDP has made significant prgress in bth bradening and deepening its interactin with CSOs at all levels f its wrk. In particular, UNDP has develped a valued niche in creating the space with gvernments fr CSO perspectives t be heard and incrprated int plicy and prgrammes. In s ding, UNDP recgnizes that CSOs are nt a substitute fr gvernment, but are central t sustainable gvernance Imprving the cnditins f the pr and excluded is the ultimate justificatin fr the existence f UNDP as develpment agency. Cllabratin with CSOs that articulate the needs and aspiratins f the pr is a sine qua nn f gd practice; Third Wrld cuntries cannt n their wn fulfil all the tasks required fr sustainable human develpment. This gal requires the active participatin and partnership f all citizens and their rganizatins; While external supprt can help imprved gvernance must ultimately cme frm within and be wned by a cuntry and its citizens. CSOs therefre, have vital rles t play as participants, legitimizers and endrsers f actins, watchdgs f the behaviur f gvernments and ther develpment actrs and as cllabratrs in natinal develpment effrts; Frm the human rights perspective, UNDP, alng with Member Gvernments, bears duties and bligatins twards the pr and excluded wh are denied internatinally recgnized entitlements. T fulfil these bligatins UNDP must engage with and invlve a range f civic actrs in its prgrammes; and UNDP psitins, public supprt, wrk and success in the future are dependent n multi-party trust. 12

14 2.2 CSOs IN SUDAN: AN OVERVIEW: The emergence f mdern civil sciety rganizatins in Sudan dates back t mid 1920s and early 1930s where scial rganizatins were established t prmte issues f educatin and ther scial services, defend the rights f the newly emerging Sudanese wrking class and t advcate the rights f Sudan fr independence. By late 1950s structured frmal NGOs were established fllwing the ratificatin f the first vluntary wrk law in Other laws were issued in 1991 and 2007: laws f vluntary wrk. The 1980s witnessed the frmatin f gegraphically, ethnically and tribally based SCOs that started t expand expnentially t reach mre than 3000 registered CSOs by the end f The tragic impacts f the 1983/84 disaster f drught and famine, intensificatin f civil war in Suth Sudan, displacement, escalatin f pverty incidence, and prliferatin f cnflicts in Transitinal Znes, Darfur and the East tgether with the cnsequential weaknesses f the Sudanese State as service prvider have cmbined t create scial and plitical envirnment cnducive fr the establishment and grwth f CSOs in the cuntry. Darfur crisis since 2003 and the expanding plitical spaces fllwing the signing f the CPA in 2005 and the cnsequential increasing presence f the internatinal rganizatins and agencies have cntributed significantly t the expansin f CSOs in the cuntry. At present CSOs sectr in Sudan is extremely fluid embracing a brad range f actrs that invlve charity grups; cmmunity-based rganizatins; wmen's rganizatins; children, yuth and disabled grups; faith-based rganizatins; prfessinal assciatins; trades unins; self-help grups; envirnmental grups; prfessinals assciatins and labur unins scial mvements; business assciatins; calitins and advcacy grups; cultural and minrity grups assciatins; gegraphically and ethnically based assciatins; and plitical activists grups. A cnspicuus feature f present Sudanese CSOs is the blurred dividing lines between gvernmental and nngvernmental rganizatins as prcesses f plitical manipulatin are quite visible and apparent. CSOs rganizatins are prtrayed as suffering prblems f elitism, manipulatin, and exclusivity and pr capacities besides being urban based and urban biased. In spite f that many CSOs have gained internatinal and reginal recgnitin and reputable recrds in gender mainstreaming and human rights advcacy while cntributed t establishment f a number f sub-reginal netwrks such as SIHA (Strategic Initiative fr Wmen in the Hrn f Africa), SLUF (Sustainable Land Use Frum in the Hrn) and Reginal RBC (Resurce Based Cnflict in the Hrn). 2.3 THE INSTITUTIONAL ENVIRONMENT OF CSOS IN SUDAN Sudan Gvernment is signatry t the Universal Declaratin f Human Rights and the Internatinal Cvenant n Civil and Plitical Rights and is, therefre, bund by internatinal cmmitments t uphld the rights f freedm f assciatin and freedm f expressin. Article 22/1 f the Cvenant states Every individual has the right f assciating with thers, including the right f establishing trade unins and jining them fr the prtectin f his r her interests. Bth the CPA and the Interim Natinal Cnstitutin (INC) guarantee a bill f rights emulating this cvenant. Mst 13

15 imprtantly, the INC guarantees the freedm f expressin and assciatin, Article 39 (1) and Article 40 (1). In Sudan the first CSOs act was back in The Act was generally described as very demcratic Act that pened huge spaces fr the grwth and participatin in public life. Even during the autcratic regime f Nimeri ( ) the same law was there in spite f the many restrictive plicies and administrative decisins curtailing rles f CSOs. During the perid there was a generus and supprtive legislatin t the grwth f CSOs/NGOs. T establish an NGO, any grup f ver 7 persns had the right t d s fr any purpse. NGOs were just asked t reprt annually t the directr f Natinal Vluntary Wrk and prvide audited annual accunts. By late 1989 all NGOs were disslved and in 1991 there was a new law that required NGOs t re-register under tighter cntrl making registratin a difficult task; als dnatins have t be declared and reprted. Security screening is nt uncmmn resulting in cnsiderable difficulties fr smthly functining CSOs sectr. At present the mst imprtant legislatin fr CSOs, is the Organisatin f Vluntary and Humanitarian Wrk Act ratified n the 5 th March The Dcument defines vluntary and humanitarian wrk as: any vluntary, humanitarian and nn-prfit activity undertaken by any NNGO, INGO r Charity Organizatin registered in Sudan fr the purpse f prvisin f humanitarian assistances, relief, general services, human rights services, envirnment prtectin services r services t imprve scial and ecnmic standards f the target cmmunity, and execute vluntary and humanitarian wrk in the abve-mentined areas (Article 4). Despite the spirit f demcratic transfrmatin created by the CPA, the 2006 Act is generally viewed as a repressive and cnstraining Act t CSO/ NGOs. The Act remains cntrversial and cncerns amng CSOs becme imprtant issues fr advcacy reaching the parliament and the Cnstitutinal Curt. The majr cncerns centred n: The treatment f bth natinal and internatinal NGOs with the same law and administrative decisins The prcedures f registratin where HAC and the security have the upper hand; sme applicatins g unanswered at all. Lack f clarity and cherence f the institutinal set ups, especially in relatin t registratin where CSOs are registered at varius institutins including HAC, Ministry f Justice, Ministry f Scial Affairs, and Ministry f Educatin The lengthy screening prcesses against individuals and rganizatins, mstly n plitical grunds; The assessment f NGOs and NGOs wrk by HAC, an institutin that lacks capacities and suffers accusatins f partiality Restrictin f access t funding; CSOs shuld get HAC s endrsement befre appraching Cnflict and verlap within gvernment institutins: access; authrizatin fr each activity; Cnfused Federal and state respnsibilities regarding NGOs registratin 2.4 DARFUR CONTEXT OF CSOS/NGOs: 14

16 1. The cnflict in Darfur has created an unusually hrrible and cmplicated crisis. Final and lasting peace settlement and a return t stability and nrmality are pssible nly with a plitical agreement between the armed mvements and the gvernment. Recnciliatin and peaceful cexistence amng lcal cmmunities remained t be key element fr sustainability f peace prcess in Darfur. Fr this t materialize the civil sciety rganizatins have t play a leading rle in narrwing the divide and bringing the cmmunities tgether. 2. The Darfur cnflict has nt lent itself t quick slutins. It has evlved frm a rebellin with relatively defined plitical aims t a cnflict increasingly vershadwed by shifting alliances, defectins, reginal and internatinal meddling and a grwing, cmplex tribal dimensin. This is particularly true since the signing f the Darfur Peace Agreement DPA. The rebel factins have been unable t maintain a unified fcus and have instead descended int a spiral f infighting and splintering, exasperating utside attempts t bring them tgether. The IDP camps are increasingly vilent, with residents manipulated by all sides while authrities als pushing them t return t unsafe areas. 3. The humanitarian peratin in Darfur is the largest in the wrld. Fr example, WFP s fd aid prgramme reached 3.7 millin peple in 2008, ut f an estimated 7 millin in Darfur. Other livelihds prgrammes have gained increasing attentin ver time. There are nw a number f different livelihd prgrammes in Darfur, fr bth IDP and rural ppulatins, albeit small scale. Few livelihds interventins are undertaken with cmmunity based and civil sciety rganizatins, and in sme cases with gvernment technical departments. Supprt fr such lcal institutins is seen as a key cmpnent f early recvery in Darfur. 4. In Darfur, cnflict-affected ppulatins cntinue t face threats t their livelihds. Livelihds ptins remain extremely limited after 6 years f cnflict. Livelihd strategies pursued and adpted are insufficient t meet basic needs r alternatively are based n cercive r explitative strategies. IDPs and rural farming ppulatins cntinue t face risks t their safety, and everyne faces restrictins t their freedm f mvement. 5. The new realities emphasize the necessity f bradening participatin in the peace talks t include the full range f actrs and cnstituencies invlved in the cnflict, including its primary victims, such as wmen and yuth, but als Arab tribes and civil sciety rganizatins. Incrprating brader and mre representative vices can help remedy the uneven weight the prcess nw gives the NCP and rebel factins. Cre issues that drive the cnflict, amng them land tenure and use, including grazing rights, and the rle and refrm f lcal gvernance and administrative structures, were nt effectively addressed in the Darfur Peace Agreement (DPA) but left t the Darfur-Darfur Dialgue and Cnsultatin prcess. This necessarily invlves the existence f rbust and vibrant CSOs that are capable enugh t prmte peace building and peaceful cexistence prcesses. 6. Histrically the earliest frm f civil sciety institutin in Darfur is prtrayed in the structures f the native administratin and traditinal leadership. Their main strength is the cntinued authrity and ppular legitimacy and knwledge f their cmmunities 7. Prir t the cnflict, sme agencies such as Oxfam GB and Practical Actin and ther INGOs and UN agencies were invlved in lnger term livelihds prgrammes and cmmunity-based develpment prgrammes fr which an essential cmpnent 15

17 was the establishment and capacity develpment f civil sciety and cmmunity based rganizatins (CBOs). Fr example, Oxfam GB had established 23 CBOs by the late 90 s; 6 in Jebel Si, 11 in Dar es Salam, 2 in Kebkabiya, 2 in Malha and 2 in Kutum. Similarly, UNDP prject f Area Develpment Schemes ADSs had created cnsiderable number f CBOs in Idd El Fursan (Suth Darfur) and Umm Kaddada (Nrth Darfur) areas during perid. Little is knwn abut whether and hw these CBOs cntinued t functin during the cnflict. The nly exceptin is Practical Actin Organizatin that cntinued t wrk with CBOs thrughut the cnflict in capacity develpment and prvisin f small grants supprt. 8. Frm late 2005, as humanitarian access declined, many mre internatinal agencies started wrking with cmmunity-based rganizatins (CBOs) and lcal NGOs. In Octber 2008, the UN estimated that it was nly able t reach 65% f the affected ppulatin, because f general insecurity, targeted vilence against aid wrkers and bureaucratic impediments such as difficulties in getting travel permits and access. Many agencies therefre wrked by remte and distant management in rder t cntinue wrking in sme very islated r insecure areas. The mst difficult cmmunities t be reached and served cntinued t be thse cmmunities living in areas under hld f rebel mvements and armed grups. 9. The expulsin f 13 internatinal agencies and the de-registratin f 4 natinal NGOs n the 4 March and the subsequent annuncement f the Sudanisatin prcess f the humanitarian wrk by the gvernment f Sudan increase the emphasis f wrking with lcal rganizatins and CBOs t increase impact, delivery and utreach. There has als recently been increased interest amngst internatinal actrs, albeit nt in a systematic and strategic manner, in supprting CSOs and CBOs including traditinal gvernance mechanisms that impact psitively n livelihds, natural resurce management and cnflict reslutin. 10. Different sectral and prject based assessments and field experiences while engaging and partnering with lcal NOGOs and CBOs shwed that their capacity t plan and implement livelihds and peace building prjects is weak and limited. This represents a main challenge t mbilize resurces and therefre engage with their lcal cnstituencies and cmmunities, let alne advcate fr change and influence gvernment plicies and actins. Mst f the lcal NGOs and CBOs are invlved in humanitarian wrk fr valid and bvius reasns t access and get funding. There is a critical need t supprting CBOs and lcal NGOs in situatins f cnflict and fr livelihd and peace building supprt during n-ging cnflict as well as early recvery. SECTION THREE: MAP AND PROFILE OF DARFUR CSOs 3.1 GENEAL MAP AND PROFILE The ttal number f registered CSOs/NGOs in the three states f Darfur is 241, distributed unevenly between the states, 104 in Nrth, 80 in the suth and 57 in Western Darfur. The number reflects gegraphical but als histrical variatin in the 16

18 establishment f CSOs where nrth Darfur is usually described as having the early develpment f CSOs wing t the famine and drught disaster and the assciated influx f internatinal rganizatins during 1980s. The shift t recvery and develpment that fllwed after 1987 has been assciated with emergence f number f CSOs especially at the cmmunity level. This is substantiated by classificatin f CSOs n the basis f date f establishment. Accrding t the table belw (Table 1), 35% were established befre the start f the cnflict in The table als indicates the remarkable grwth f CSOs as a result f cnflict (65%). The large presence f the humanitarian internatinal cmmunity in Darfur tgether with the twining plicy declared and applied by HAC after 2003 cnsidered as ne f the main factrs cntributed t such grwth. Cnsidering the gegraphical distributin f Darfur CSOs, it is evident frm the table that CSOs is highly urban based with 83% being based in the twns especially in the fur majr twns f El Fasher, Nyala, Geneina and Zalengei. Here it shuld be nted that ut f this 22.0% have the IDPs camps as their gegraphical fcus. Rural-based rganizatins accunt fr 17% f the ttal and these are mstly established befre the crisis. They are fund mainly in eastern Darfur arund Um Keddada in Nrth Darfur and Idd El Fursan area f Suth Darfur; these are areas where UNDP Area Develpment Scheme (ADS) cmmunity-based prject was implemented during Under this categry the assessment identified the presence f effective cmmunity based rganizatin in small twns such as Kutum and Kubkabyia established by OXFAM GB, Oxfam Canada, Practical Actin and GTZ during the 1990 far befre the current humanitarian crisis. The distributin f CSOs and lcal NGOs reflects the limited gegraphical and scial ut reach f CSOS in Darfur. It als reflects the fact that mst f these rganizatins are prject-based and established as part f strategic partnership with clear bjectives fr capacity develpment, lng term supprt and advcacy fr specific issues. Almst 50% f CSOs describe their presnt level f engagement and perfrmance as nn satisfactry. Table 1: Prfile f Darfur CSOs State Ttal Number Date f establishment After Gegraphic Fcus Level f engegment and perfrmance Urban Rural Camps Satisfactry Nt satisfactry Nrth Darfur Suth Darfur West Darfur Ttal % Regarding distributin by thematic fcus (Table 2) the table shws that the fcus f CSOs is verwhelmingly humanitarian including relief and scial service prvisin. Livelihd and recvery, gender, peace building and cnflict reslutin and fcus n yuth are very marginal engagement f Darfur CSOs evens the interventins. This als reflects the fact that the interventins f CSOs are highly dnr-driven and shaped by the mandate f the internatinal cmmunity in Darfur whse fcus is principally humanitarian. The thematic areas f recvery, livelihds and peace building require special capacity and skills, prfessinal knwledge and prgrammatic structure and set up which are mstly lacking fr Darfur CSOs as will be elabrated later. 17

19 Table 2: CSOs by interventin fcus (%) Area f interventin % Area f interventin % Relief/humanitarian 49.3 Wmen and children 7.5 Livelihds and fd security 6.0 Gd gvernance and rule f law 3.0 Cnflict preventin and peace building 4.5 Capacity building 1.5 Envirnment 6.0 Yuth 1.5 Aspect f all f the abve 20.7 In additin t thse CSOs based in Darfur a huge bdy f Darfur-related CSOs are fund in Khartum ttalling arund 232 with many f them having direct presence in Darfur. The rganizatins reflect a high degree f variatins in terms f gegraphical and tribal affiliatins where many f them hld the name f gegraphical lcatin r a tribal grup (Wadi Hawar, Jibal Midb, Jebel Marra, Wadi Azm, Radm, Kabkabiya, Al Sireif, wadi Baraka, Wadi Barae, Wadi Turu, Burush, Dar Birgid, Wadi Kafut, Jebel Mn, Hufrat El Nihas); nearly all majr tribal grups in the regin have their wn civic structures r NGOs. Divisin n plitical, gegraphical and tribal/ethnic backgrunds is a characteristic feature f all Darfur CSOs whether being based in Darfur r Khartum. Khartum-based rganizatins als reflect a wide range f engagements in humanitarian wrk. Plitical activism, plitical advcacy, dnr and missin briefing, resurce mbilizatin, hwever, remain the fcus f engagement. Characteristics f Khartum-based Darfurian CSOs/NGOs Almst all CSOs/NGOs are mderately small and are in transitin; a lt f essential needs still exist. Least cnnected; althugh these CSO/NGOs are based in Khartum there isn t much that brings them tgether and cmmunicatin tends t be minimal They are starkly pr r against gvernment Apparent fragmentatin based n ethnic, tribal, plitical and gegraphical affiliatins with clear divisin between urs and theirs. Cntinuusly divide and redivide; CSOs netwrks are nt safe either. Limited cntact with cnstituencies 3.2 TARGET GROUPS: Classificatin f Darfur CSOs by target grups indicates that the general fcus is n vulnerable grups/cmmunities cnstituted especially by victimized wmen and children staying inside and utside the camps. Specific targeting f IDPs as special scial categry was reprted by 22% f the sampled rganizatins. 23% f the rganizatins reprted targeting f brader CSOs by targeted grup % IDPs 22 Wmen + children 54 Brad cmmunity grups 23 disadvantaged and cnflict-affected grups utside the camps including farming and pastral cmmunities and thse in twns and central villages, particularly in eastern and suthern Darfur. Fur CSOs in the three States were fcusing principally n pastralists. The figures als reflect the difficulties CSOs are encuntering in dealing with IDPs; such difficulties include the limited capacities f CSOs in what they are ding and the apparent lack f trust IDPs have in sme f CSOs caused by categrizatin n ethnic/tribal and plitical grunds. This in fact tends t undermines the explicit assumptin that wrking with lcal CSOs wuld increase utreach t the mst vulnerable and remte cmmunities. In this cnnectin it shuld be stressed that pliticizatin f the humanitarian wrk is a cmmn phenmenn in Darfur and as such it requires careful appraches in selectin f partners t avid putting them 18