GP 170-203 Social Well-Being

S 1
S W-B
Access to and Delivery Access to and Delivery

of Basic Needs Services of Education
t Appropriate and Quality t System-Wide Development
Assistance and Reform
t Minimum Standards for t Equal Access
Water, Food, and Shelter t Quality and Conflict-Sensitive
t Minimum Standards for Education
Health Services
SOCIAL
WELL-BEING
Ability of the people to be free
from want of basic necessities
and to coexist peacefully
in communities with
opportunities for
advancement.
Social Reconstruction Right of Return and

t Inter- and Intra-Group Resettlement of Refugees
Reconciliation
and Internally Displaced
t Community-Based Development
Persons
t Safe and Voluntary Return or
Resettlement
t Property Dispute Resolution
t Reintegration and
Rehabilitation
10-162
Social Well-Being
Ability of the people to be free from want of basic needs and to coexist
peacefully in communities with opportunities for advancement.
10.0 What is social well-being?

Social well-being is an end state in which basic human needs are met and people are able
to coexist peacefully in communities with opportunities for advancement. This end state
is characterized by equal access to and delivery of basic needs services (water, food, shelter,
and health services), the provision of primary and secondary education, the return or
resettlement of those displaced by violent conflict, and the restoration of social fabric and
community life.
10.1 What are the key social well-being challenges in societies emerging
from conflict?
Violent conflict may create humanitarian crises and inflict tremendous harm on civil-
ian populations. These crises involve acute water, food, and shelter shortages; large-scale
population displacement; and the absence of critical health services, among many other
challenges. As families struggle to survive during and after violent conflict, social fabric
may be torn apart within and among communities. Disputes about land, water, harvests,
pasture rights, marriage, inheritance, and other inter- and intra-community issues typi-
cally arise and may threaten a fragile peace. Schools may be shut down or destroyed.
Children may have missed years of education, and many may have been denied the
chance to start primary school. Essential services infrastructure may be ruined, including
ports, roads, and basic utilities.621
10.2 Why is social well-being a necessary end state?

Peace cannot be sustained over the long term without addressing the social well-being of
a population. Without basic necessities such as food or shelter, large-scale social instabil-
ity will persist because people will be unable to resume the functions of normal life—
sustaining a livelihood, traveling safely, engaging in community activities, or attending
school. Without helping people return to their homes or new communities of their choice
or providing a means for peacefully resolving disputes, people may not move beyond
violent conflict or rebuild their lives.
10.3 What are the necessary conditions to achieve social well-being?

sAccess To and Delivery of Basic Needs Services is a condition in which the population has
equal access to and can obtain adequate water, food, shelter, and health services to ensure
survival and life with dignity. These services should be delivered in a manner that fosters
reliability and sustainability.
sAccess To and Delivery of Education is a condition in which the population has equal and
continuous access to quality formal and nonformal education that provides the opportunity
for advancement and promotes a peaceful society. This condition involves system-wide
621. UNDP/USAID, First Steps, 2007.

Social Well-Being 10-163
development and reform, and equal access to relevant, quality, and conflict-sensitive
education.
sReturn and Resettlement of Refugees and Internally Displaced Persons is a condition in
which all individuals displaced from their homes by violent conflict have the option of a
safe, voluntary, and dignified journey to their homes or to new resettlement communities;
have recourse for property restitution or compensation; and receive reintegration and reha-
bilitation support to build their livelihoods and contribute to long-term development.
sSocial Reconstruction is a condition in which the population is able to coexist peacefully
through intra- and intergroup forms of reconciliation—including mechanisms that help to
resolve disputes non-violently and address the legacy of past abuses—and through develop-
ment of community institutions that bind society across divisions.
10.4 General Guidance for Social Well-Being

10.4.1 Build host nation ownership and capacity. Immediately after violent conflict,
international assistance may be necessary to meet the basic needs of the population,
address return and resettlement for refugees and IDPs, and promote community-based
development and reconciliation, as the host nation may be unable to meet those chal-
lenges alone. Participation of the host nation population—particularly at the commu-
nity level—in the assessment and design of basic services helps ensure that the services
are responsive to actual needs and gives people a greater stake in the success of those
services. All assistance activities should maximize the potential to build the capacity
of the host nation population to sustain basic services. For example, one of the key
components of humanitarian assistance can and should be to complement the work of
nascent and often struggling ministries or bureaucracies. International actors should
work within host nation government structures to help generate legitimacy for the
host nation government.
10.4.2 Act only with an understanding of the local context. The key to improving the
social well-being of the conflict-affected population is to understand the context of the
conflict and the living conditions of the people. A thorough assessment might include
the following questions:
t What role did the provision of basic needs play in the conflict?
t How has the host nation population met their basic needs in the past?
t What capacity do host nation institutions and actors have to deliver basic
services?
t What is the relationship between the education system and the conflict?
t What is the scope of the displacement crisis?
t What host nation mechanisms already exist to promote dispute resolution
and reconciliation?
t Where does popular support for dispute resolution and reconciliation pro-
gramming lie?
10.4.3 Prioritize to stabilize. Social well-being is difficult to achieve even in the best of
circumstances. In this environment, prioritize what is necessary for survival and for the
resolution of disputes that could reignite violent conflict. Top priorities include pre-
venting further loss of life and displacement, delivering aid and services to vulnerable
10-164 Social Well-Being
populations, mitigating public health epidemics, and collecting evidence and witness
statements to address the legacy of past abuses.622 Focus on meeting the immediate
needs of those most affected (typically women, children, the elderly, the disabled, IDPs,
refugees, minorities, and those living with disease), while keeping in mind the impact
of these actions on sustainability.623 Once these priorities are addressed, focus on return
and resettlement, education reform, and key aspects of social reconstruction.
10.4.4 Use a conflict lens. The provision of aid can never be entirely neutral. It inevitably
involves a transfer of resources in countries where they are extremely scarce and where
unequal distribution may have contributed to the conflict. With this in mind, recog-
nize that every decision—where to locate an emergency medical facility, whether to
empower a particular institution, how to deliver education in an IDP camp, or how
to select an interim health minister—has implications for the conflict and a lasting
political settlement.
10.4.5 Recognize interdependence. Addressing the social well-being of a population is
critical for the success of broader recovery efforts. A broken social fabric will under-
mine progress made in the economic, governance, and rule of law arenas. Sustainability
in these areas will be lost if the population has nothing to eat; if children cannot go
to school; or if communities remain divided along ethnic, religious, or political lines.
Progress in the economic, governance, or rule of law spheres provides the necessary
infrastructure for the success of social well-being programs.
10.5 Necessary Condition: Access To and Delivery Of Basic Needs

Services
10.5.1 What is access to and delivery of basic needs services? Why is it a necessary
condition?
The Universal Declaration of Human Rights states that everyone has the right to
adequate food, housing and medical care.624 Access to and delivery of basic needs
services is therefore a condition in which the population can obtain water, food, shelter
and health services in adequate quantity and quality to ensure survival and satisfy their
right to “life with dignity.”625 Normal systems for accessing these necessities will likely
have been destroyed or incapacitated due to the conflict or may have failed to meet
needs to begin with. Building or rebuilding physical infrastructure is necessary for the
provision of services over the long term. Restoring access to these services is neces-
sary to ensure the survival of conflict-affected populations, sustain livelihoods over the
long-term, and to boost the legitimacy of the state.
10.5.2 Guidance for Access To and Delivery Of Basic Needs Services
10.5.3 Approach: Appropriate and Quality Assistance
Appropriate and quality assistance refers to how services are delivered. Appropriate means
assistance that reflects conditions on the ground and is tailored to the cultural, social,
622. Dobbins, Jones, Crane, Cole DeGrasse, The Beginner’s Guide, 2007). United Kingdom Stabilisation Unit,
“Helping Countries Recover,” 2008.
623. Sphere Project, Humanitarian Charter and Minimum Standards in Disaster Response, 2004. Hereafter:
Sphere, Humanitarian Charter, 2004.
624. United Nations General Assembly, Universal Declaration of Human Rights, 1948.
625. Sphere, Humanitarian Charter, 2004.
and survival needs of the population. Quality assistance refers to providing equal access,
coordinating assistance across the multiplicity of providers, and nesting the immediate
methods of delivery in a locally driven plan for development and sustainability. It involves
a required sensitivity to impartiality for service delivery and the recognition that inappro-
priate service delivery may actually do harm.
10.5.4 Provide assistance based on the needs of conflict-affected populations to ensure
equal access for all. Maximizing equal access requires the ability to recognize the
vulnerabilities, needs, and capacities of conflict-affected groups. Age, gender, disabil-
ity, and economic and HIV/AIDS status can create severe disadvantages for certain
groups of people, who can be further marginalized as a result.626 Provision should be
enhanced for the most vulnerable to ensure that they are afforded the same access as
the rest of the population. Providers should be trained to identify vulnerabilities.
10.5.5 Tailor assistance to local culture. When delivering services, take care to avoid
dishonoring local beliefs or traditions related to water, food, shelter, and health. Careful
consideration of the local culture can help avoid sowing distrust in the population or
exacerbating social cleavages.627 Host nation actors know what systems the community
will accept and how service programs can respect indigenous models and methods.628
Incorporate women into planning and implementation processes and understand how
the choice of host nation partners could impact stability in communities.
10.5.6 Discourage the population from using coping strategies that arise from the inabil-
ity to access basic services. Destructive coping strategies or “crisis strategies” include sale
of land, distress migration of whole families, and deforestation. Some coping strategies
employed by women and girls, such as prostitution or travel to unsafe areas, expose
them to a higher risk of infection or sexual violence.629 Understand which groups are
employing coping strategies, why they are doing so, and use mitigation programs based
on the context.
10.5.7 Do no harm. In conflict-affected countries, assistance activities can never be
completely neutral. Resources inevitably represent the distribution of power and
wealth. Managing these resources can and will create tensions if careful attention is
not given to how they are distributed and delivered. “Do no harm” is a principle that
recognizes the potentially negative impacts of aid and seeks to prevent aid activity
from harming the populations it is trying to help.630 For more on nondiscrimination in
providing service, see Section 8.6.11.
See Trade-off: Section 8.9.3, Rapid service delivery and resource procurement vs. empower-
ment of spoilers or criminal elements.
10.5.8 Prioritize immediate relief, but do not neglect the impact on long-term development.
One devastating impact of violent conflict may be an acute humanitarian crisis. While
626. Ibid.
627. Center for Stabilization and Reconstruction Studies, Assistant Secretary of Defense for Health Affairs, and
International Medical Corps, Healing the Wounds: Rebuilding Healthcare Systems in Post-Conflict Environ-
ments, 2007. Hereafter: CSRS/ASDHA/IMC, Healing the Wounds, 2007.
628. CSRS/ASDHA/IMC, Healing the Wounds, 2007.
629. Sphere, Humanitarian Charter, 2004.
630. For further discussion, see Mary B. Anderson, Do No Harm: How Aid Can Support Peace—or War (Boulder,
Colo.: Lynne Rienner Publishers, Inc., 1999). Hereafter: Anderson, Do No Harm, 1999.
this may require direct aid, always seek to maximize opportunities for building host
nation capacity for the long-term and to minimize dependency. Understand the distor-
tion of the host nation economy that can result from prolonged delivery of relief goods
and services.631 Risks to the host nation economy can be severe, including the creation
of a “second civil service,” the inevitable drawdown of international assistance, and the
inability to sustain services.632 Pay adequate attention to restoring or building basic ser-
vice infrastructures that will allow host nation actors to provide necessities themselves
after international actors leave.633
10.5.9 Coordinate humanitarian assistance and development strategies to maximize
coherence and sustainability. Facilitating a smooth transition from relief activities to
sustainable development is a major challenge in current practice. This transition refers
to the shift from primarily life-saving measures to restoring livelihoods that contribute
to long-term growth.634 Activities in both areas of relief and development are often
funded and managed as distinct programs. This may create gaps—both financial and
institutional—in provision of basic needs when relief activities end and the devel-
opment activities largely take over.635 Coordinate assistance strategies closely with
development strategies to ensure that relief activities are nested in and coherent with
the longer-term objective of sustainability.636
See Gap/Challenge: Section 10.10.3, Transition from relief to development activities.
10.5.10 Approach: Minimum Standards for Water, Food, and Shelter
Meeting the minimum standards for water and food broadly involves ensuring the
population has equal access to water and food, in adequate quantity and quality to survive,
to contain the spread of waterborne diseases and to prevent malnutrition. The minimum
standard for shelter involves ensuring access to housing to protect against environmental
elements and ensure life with dignity.
10.5.11 In the emergency phases of recovery, strive to meet the immediate survival needs
of the population for water, food, and shelter.
t Clean water and proper sanitation. At the minimum, the population should have
safe and equal access to an adequate amount of clean water to prevent death
from dehydration and to enable consumption, cooking, and good hygienic
practices. The population should also have access to adequate sanitation systems
to reduce the transmission of faeco-oral diseases and provide a means for excreta
disposal, vector control, solid waste management, and drainage.637
t Food security. At the minimum, the population should have access to food in
adequate quantity and quality, in a way that ensures their survival and upholds
631. United States Agency for International Development, Fragile States Strategy, 2005.
632. UNDP/USAID, “First Steps,” 2007.
633. Ibid. CSRS/ASDHA/IMC, “Healing the Wounds,” 2007.
634. United Nations Secretary-General, Transition from Relief to Development: Key Issues Related to Humanitarian
and Recovery/Transition Programmes, 2006.
635. United Nations High Commissioner for Refugees, Mind the Gap! UNHCR, Humanitarian Assistance and
the Development Process, 2001.
637. Sphere, “Humanitarian Charter,” 2004.
their dignity.638 Food security includes access to food, affordability of food,

adequate quantity and availability of food, along with safety and cultural
acceptability.
t Shelter. At the minimum, shelter should provide for personal safety against
environmental elements and disease, provide a space for living and storage of
personal belongings, and protect privacy to promote human dignity and emo-
tional security.639 The right to housing includes adequate space and protection from
environmental elements and disease vectors. Strive for housing that is inhabitable,
accessible, affordable, and culturally appropriate, and that enables access to goods and
services such as safe drinking water, energy for household activities, sanitation and
washing facilities, refuse disposal, drainage, and emergency health care services.640
10.5.12 Provide quantity and quality of water to ensure survival, improve hygiene, and
reduce health risks. People can survive longer without food than water.641 Protecting
clean water supplies from contamination is therefore a major priority. Water-related
transmission of diseases results from both contaminated water supplies and insuf-
ficient quantities of water for personal and domestic hygiene. If it is impossible to
meet both standards, focus first on providing access to sufficient quantities of water,
even if the quality may be substandard.642 HIV/AIDS-affected individuals will have a
special requirement for water and personal hygiene. Water will also be in high demand
for livestock and crops. Maximize storage capacity with containers, reservoirs, and
tanks; storing untreated water undisturbed can considerably improve water quality.643
Determining the number and location of water sources will depend on an assessment
of the situation on the ground, including the climate, individual physiology, social and
cultural norms, and types of food generally consumed.
10.5.13 Impart important information to the public about the benefits of water and
sanitation services and facilities.644 Providing clean water and sanitation facilities is not
enough. Treated water sources have limited effects if the population does not under-
stand its health benefits and the importance of using it. They may opt for water from
rivers, lakes, wells, or other sources because of convenience, proximity, and taste. Focus
on promotional messages that stress the importance of using protected water sources.
Good personal and environmental hygiene is derived from knowledge and education
about public health. Also consider creating water or sanitation committees to manage
communal facilities such as water points, public toilets, or washing areas.
10.5.14 Tailor water and food distribution and assistance according to local factors.645 The
availability of supplies such as fuel, soap, clean water and cooking utensils will deter-
638. United Nations World Food Summit, Rome Declaration on World Food Security and World Food Summit Plan
of Action, 1996.
639. United Nations High Commissioner for Refugees, Handbook for Emergencies, 2000. Hereafter: UNHCR,
Handbook for Emergencies, 2000. Sphere, “Humanitarian Charter,” 2004.
641. United States Agency for International Development, Field Operations Guide for Disaster Assessment and
Response—Version 3.0, 1998. Hereafter: USAID, FOG, 1998.
642. Sphere, “Humanitarian Charter,” 2004. USAID, “FOG,” 1998.
643. USAID, “FOG,” 1998.
645. Ibid. USAID, “FOG,” 1998.
mine whether foods provided need to be ready to eat or if they can require some prepa-
ration. Also be sure to understand what foods may be culturally inappropriate. Assess
the nutrition situation and tailor food programs based on nutritional conditions of the
population.646 Deciding the location of water sources will depend on population density
and security requirements for women and others traveling to communal water sources.
10.5.15 Use food assistance strategies that facilitate sustainability. Consider strategies
to complement or replace direct food aid, such as bolstering the primary production
capacities of the population, generating income and employment to improve purchas-
ing power and livelihoods, and ensuring people’s access to markets to acquire necessary
food and other basic needs.647 Other constructive options include subsidized food or
food-for-work programs. These options are more desirable because they uphold dignity
while promoting livelihood development and independence.
10.5.16 Aim for equity in food and water distribution.648 Consult with local leaders
on how to equitably distribute food and water resources and inform the population
about the basis for determining food rations and water source location.649 The popu-
lation should perceive the provision of food and water to be fair and based on need,
rather than on gender, disability, religion, or ethnic background. Local distribution
agents for food and water should be selected based on their commitment to impar-
tiality, capacity, and accountability. These agents can include local elders, elected re-
lief committees, local institutions, host nation or international NGOs, or the govern-
ment. Choose distribution points based on safe accessibility by the population rather
than the convenience of the logistics agency. Registering individuals and households
receiving food assistance will also boost effectiveness, especially when assistance will
be needed over an extended period of time. Also be sure to evaluate the process to
ensure that the food is reaching its intended recipients.
10.5.17 Resort to providing free food aid only when the need is severe and there is no other
alternative. Free distribution of food aid should be used only when absolutely necessary
and should be stopped at the earliest possible moment to prevent dependency.650 Direct
food aid may be necessary to sustain life in some situations or to mitigate dangerous
coping strategies of the population. This is the case if normal systems for food produc-
tion, processing, and distribution have been disrupted, co-opted or destroyed by war-
ring parties to the conflict. Any mass feeding or provision of cooked food that is ready
to eat should only be provided on a short-term basis to those in greatest need who are
unable to prepare food for themselves or if the distribution of dry food rations could
endanger recipients. Avoid free distribution when food supplies are available in an area
but people lack access to it, or if the absence of food in an area could be resolved by
improving market systems.
10.5.18 Develop tailored sanitation programs to best benefit the population. Sanita-
tion programs involve many different areas: excreta disposal, control of disease
646. Sphere, “Humanitarian Charter,” 2004. USAID, “FOG,” 1998.

648. United Nations World Food Programme, Emergency Food Security Assessment Handbook, 2005. USAID,
FOG, 1998.
650. Ibid.
vectors, solid waste management, and drainage systems.651 In designing sanitation

facilities, pay close attention to preferences and cultural habits. It may be difficult
to accommodate the needs of every group—women, men, children, disabled—when
building communal facilities intended to serve large numbers of people. In gen-
eral, facilities should be located in safe places and have adequate lighting to better
protect women and girls from attacks in communal sites. Vector control programs
can mitigate the spread of disease, but simple steps such as hand-washing and other
good hygienic practices can also go a long way. Reduce public health and environ-
mental risks by setting up a means for managing solid waste and drainage to ad-
dress standing water or water erosion from storms, floods, and medical waste.
10.5.19 Provide shelter assistance to meet survival needs. Everyone has a right to ad-
equate housing that sustains life and dignity.652 During and after violent conflict, many
displaced people will require shelter assistance after being driven from their homes or
while deciding whether or when to return to their homes.653 Shelter assistance should
strive to protect as many people as possible from environmental elements such as the
cold, wind, rain, or heat. Locations of shelters should consider the presence of unex-
ploded ordnance, availability of food and clean drinking water, proximity to toilets
and other sanitation facilities, and accessibility of the site by relief agencies. Providing
temporary transit housing for displaced persons can mitigate the problem of ad-hoc
housing occupation.654 Primary transitional shelter options for displaced populations
include residing with host families, self-settling in rural or urban areas, or residing in
mass shelters or camps.655
10.5.20 When choosing a site for mass shelter, pay close attention to land rights.656 While
the host nation often offers land for mass shelters, local communities frequently assert
traditional or customary rights to the land.657 Tensions and resentment may surface
in local communities if the land depreciates as a result of a settlement, the settlement
population refuses to leave, or if the camp population enjoys greater benefits and sup-
port than the local community. When choosing a site, clarify land ownership whenever
possible. Any use of land should be grounded in formal legal arrangements in accor-
dance with domestic law.658 Occupants of the site should have full access and land use
rights to graze animals and engage in agricultural activities.
10.5.21 Tailor shelter designs and planning to local requirements. In designing emer-
gency shelters for survival, consider cultural norms for sleeping accommodations and
subdivisions of living space to ensure safety and privacy for women, girls, and boys,
who are most vulnerable to attack. When assisting with housing, other factors to con-
sider include affordability; habitability; location; cultural appropriateness; access
651. Ibid.
652. Ibid.
653. Oxfam, Transitional Settlement—Displaced Populations, 2005.
654. Daniel Fitzpatrick, Land Policy in Post-conflict Circumstances: Some Lessons from East Timor (Geneva: United
Nations High Commissioner for Refugees, 2002). Hereafter: Fitzpatrick, Land Policy, 2002.
655. Oxfam, Transitional Settlement—Displaced Populations, 2005.
656. Ibid. UNHCR, “Handbook for Emergencies,” 2000.
657. USAID, FOG, 1998.
658. Ibid.
to natural resources; and the availability of services, facilities, materials, and infra-
structure.659 Build insulation or ventilation into the design as needed, depending on
the climate.
10.5.22 Use shelter construction processes as an opportunity to build host nation capacity
and promote livelihood development.660 Host nation actors should partake in procuring
building materials or contributing manual labor to build capacity and promote liveli-
hood development. Develop skills training programs and apprenticeship schemes to
maximize capacity building for host nation actors in housing construction processes.
Those who are less physically able can assist in tracking inventory and other adminis-
trative responsibilities.
10.5.23 In addition to housing, be prepared to provide nonfood items that may be necessary
to maximize self-sufficiency and self-management.661 Most displaced people will have few
possessions and may need everyday items such as changes of durable clothing; bedding
materials that are culturally appropriate; bath and laundry soaps; and cooking facilities
and utensils, including stoves, ovens, fuel, pots, pans, and silverware. Materials from dam-
aged homes or buildings can also be used to enhance living spaces in improvised shelters.
10.5.24 Approach: Minimum Standards for Health Services
Minimum standards for health services involve the provision of care to prevent untimely
death and illness. Careful thought should also be given to laying the foundations for a
health care system built on sustainable infrastructure, services, and public health educa-
tion.662 After violent conflict, it is not uncommon to find that health care systems, if they
even existed before the conflict, have collapsed, health information has disappeared, and
communication systems have broken down. Other major health challenges include a lack
of health-related information about the population, low absorption capacity, and persis-
tent political and financial uncertainties.
See Gap/Challenge: Section 10.10.8, Mental health needs of conflict-affected populations.
10.5.25 Treat those with the most immediate health risks while restoring basic health ser-
vices for the broader population.663 Provide medical attention to those in greatest need.
The immediate priorities of health care in this environment should be to prevent and
reduce levels of death and illness.664 The greatest vulnerabilities often involve women,
children, the elderly or disabled, and people living with HIV/AIDS. Epidemics may
be rampant, while other ailments common among war-torn populations may include
mosquito-borne and gastrointestinal diseases.665 In these environments, the most stag-
gering health indicators are maternal mortality and under-five mortality from water-
borne diseases, lack of immunization, malaria, and other infectious diseases. Standing
up health clinics at the community level is critical to treat people with immediate
660. Ibid.
661. Ibid.
663. Inter-Agency Standing Committee, Guidelines for HIV/AIDS Interventions in Emergency Settings, 2003.
Hereafter: IASC, Guidelines for HIV/AIDS, 2003.
665 UNDP/USAID, “First Steps,” 2007. World Food Programme and World Bank (High-Level Forum on the
Health Millennium Development Goals), “Health Service Delivery in Post-Conflict States,” 2005. Hereaf-
ter: WFP/WB, “Health Service Delivery,” 2005.
health needs and provide necessary attention to HIV/AIDS and other communicable
diseases with the potential to adversely affect stability. Pay special attention to the pos-
sibility of public health epidemics and focus on strategies that deliver the most health
benefits to the most people.666
10.5.26 Support a sustainable health care system for the population.667 While service
delivery is critical, address the development of health care infrastructure, education,
and training that are the foundation for sustainable health care. This may begin with
support for the ministry of health in developing a national health policy and plan. De-
veloping an effective and efficient health care system will be an enormous undertaking,
as it is a complex interaction of parts that may have been absent or severely dilapidated
before and following the conflict.668 In laying the foundation for this system, strive to
provide equal access to the population by overcoming geographical or financial barri-
ers. Building a health sector from scratch is very difficult, so refrain from throwing out
what is there. Assess health care structures and build on them.
10.5.27 Work closely with host nation health authorities and affected populations to
ensure that critical needs are met. Consult closely with host nation health authorities to
identify areas with the most need, where the population is not already being serviced
by a local facility. Because women and children will be the primary users of health
care, women should participate in the planning and design of health care services to
maximize the effectiveness of those programs.669 Consider infrastructure obstacles
that may restrict certain populations from accessing these services. Mobile clinics may
be necessary to fill gaps in service, but be careful not to duplicate existing efforts. The
best entry points for emergency health care provision will be at the community level
in the form of clinics and health posts. Many people will seek medical attention in
these environments—community-level facilities can help to accommodate this influx,
separating critical cases from those involving simple ailments.
10.5.28 Mainstream multi-sectoral HIV/AIDS interventions into recovery program-
ming. Recovery programs do not adequately account for HIV/AIDS challenges. Given
its broad impacts across society, HIV/AIDS is an issue that should be “mainstreamed”
or seriously accounted for in broader recovery programs.670 Ensure that peacekeep-
ers, humanitarian staff, and other military forces present in these environments are
included in prevention strategies.671 HIV/AIDS should be factored into food security
programs, and shelter and site planning projects. Those handling HIV/AIDS pro-
grams should understand cultural stigmas and discrimination that hamper the effective
provision of treatments. Use approaches that reduce the root causes of stigmas through
awareness programs, mass media campaigns, public dialogue and interaction between
HIV-affected people and target audiences, and participatory education to address
common fears and misconceptions.672
667. WFP/WB, “Health Service Delivery,” 2005.
668. Ibid.
670. IASC, “Guidelines for HIV/AIDS,” 2003.
671. Ibid.
672. Joint United Nations Programme on HIV/AIDS (UNAIDS), Reducing HIV Stigma and Discrimination:
A Critical Part of National AIDS Programmes, 2007. Hereafter: UNAIDS, Reducing HIV Stigma and
10.5.29 Respond appropriately and adequately to victims of sexual and gender-based

violence. The lawlessness of war-torn countries often makes women particularly vul-
nerable to sexual violence and exploitation and more likely to assume high-risk sexual
behavior in exchange for goods or services as a means for survival.673 Common forms
of assault against women include rape, sexual harassment, genital mutilation, domes-
tic violence, forced marriages, and sexual exploitation.674 Men can also suffer sexual
and gender-based violence through rape or genital mutilation. Health care providers
should be trained to respond appropriately and provide psychological services for these
victims, taking into account cultural stigmas and discrimination that may be relevant.
Be prepared to provide free voluntary and confidential counseling services, testing
for HIV/AIDS and other communicable diseases, and necessary medical supplies to
treat infections that occur. Health care providers should also be sensitized to medical
confidentiality and should be trained on international standards for handling victims
of sexual violence. Sometimes health care providers will have to fill out police forms or
testify in court in cases involving sexual violence, which is difficult to balance against
principles of confidentiality and respect for the victim.
10.5.30 Restore information systems to promote public health.675 Information systems
will likely be broken down after violent conflict, making it difficult to communicate
important public health messages to the population and collect critical data that
informs the delivery of health care services. Without a means for communication, it
will also be difficult to identify or access victims of sexual and gender-based violence
to determine the prevalence of HIV/AIDS and to provide necessary treatments.
Restore public information systems as quickly as possible and develop education
and prevention strategies.676 Collecting accurate information on the prevalence and
spread of diseases is also a serious gap that should be improved to enhance responses
to those in most need.677
10.6 Necessary Condition: Access To and Delivery Of Education

10.6.1 What is access to and delivery of education? Why is it a necessary condition?
Education is a basic right, recognized by many international conventions including the
Universal Declaration of Human Rights (1948), the UN Convention on the Rights of
the Child (1989) and the Geneva Convention (IV) Relative to the Protection of Civilian
Persons in Time of War.678 Access to and delivery of education is a condition in which
every child receives primary education, even in times of war and without regard to
ethnicity, gender, or location. This condition also includes access to higher education for
advanced learning, development of professional skills, and nonformal education for youth
Discrimination, 2007.
673. Timothy Docking, AIDS and Violent Conflict in Africa (Washington, D.C.: U.S. Institute of Peace, 2001).
Hereafter: Docking, “AIDS and Violent Conflict,” 2001.
674. IASC, “Guidelines for HIV/AIDS,” 2003.
675. USAID, “FOG,” 1998.
676. UNAIDS, “Reducing HIV Stigma and Discrimination,” 2007.
677. Docking, “AIDS and Violent Conflict,” 2001. Sphere, “Humanitarian Charter,” 2004.
678. Inter-Agency Network for Education in Emergencies (INEE), Minimum Standards for Education in Emer-
gencies, Chronic Crises and Early Reconstruction, 2004. Hereafter: INEE, “Minimum Standards for Educa-
tion,” 2004.
and adults who may have never received or completed formal education.679 The continued
delivery of education during and following violent conflict is particularly critical. There
is a movement to include education as a “fourth pillar” of humanitarian response, along
with food, health, and shelter.680 Education can help prevent the renewal of conflict by
offering children and their families a source of stability and normalcy that can help them
cope with conflict and its aftermath. It can provide children with a safe space and be
the means for identifying affected children who need specific services. It can also inspire
cultural and moral changes that transform sources of conflict and encourage peaceful
coexistence, play a crucial role in promoting human and social capital, foster a sense of
national identity, and fuel sustainable development and peace.681
10.6.2 Guidance for Access To and Delivery Of Education

10.6.3 Approach: System-Wide Development and Reform
System-wide development and reform of education involves meeting emergency needs
for primary education while laying the foundations for a comprehensive and sustainable
education system. Education development begins with bringing local and state authorities
and civil society actors together to encourage dialogue; to empower and bestow legitimacy
on local and national institutions; and to determine common goals in which education
promotes peace, stability, and prosperity.682 Common effects of violent conflict on the edu-
cation system include lower enrollment rates, destroyed facilities, shortages of teachers,
lack of funding, sub-par standards and quality of education services, loss of state legiti-
macy and presence, and corruption.683 While needs assessments and emergency response
come first,684 there may be no sharp distinction between the humanitarian phase and the
reconstruction phase since they are undertaken at the same time.685
10.6.4 Use a “community-based participatory approach.” 686 To develop a quality and
long-lasting education system, it is crucial that the community participates in every
stage of the reforms, from assessment and planning to implementation, monitoring,
and evaluation.687 Community participation in educational reforms can help build
social cohesion and host nation ownership and ensure the education system’s long-
term sustainability. Educational reform programs should use community members
as teachers, establish community school boards, and train youth leaders. Often com-
munity members have already developed ways to continue education during conflict,
679. Yolande Miller-Grandvaux, “DRAFT Context Paper: What is the role of education as it relates to reducing
fragility?” (Washington, D.C.: U.S. Agency for International Development, 2009). Hereafter: Miller-
Grandvaux, “DRAFT Context Paper,” 2009.
680. Miller-Grandvaux, “DRAFT Context Paper,” 2009.
681. United Kingdom Department for International Development, Education, Conflict, and International Devel-
opment, 2003. Hereafter: UK DfID, Education, Conflict and International Development, 2003.
682. United Nations Educational, Scientific, and Cultural Organization, Education in Situations of Emergency,
Crisis and Reconstruction: UNESCO Strategy Working Paper, 2003. Hereafter: UNESCO, Education in Situa-
tions of Emergency, 2003.
683. USAID, “DRAFT Context Paper,” 2009.
684. Margaret Sinclair, Planning Education in and After Emergencies (Paris: United Nations Educational, Scientific
and Cultural Organization, 2002). Hereafter: Sinclair, Planning Education in and After Emergencies, 2002.
685. World Bank, Reshaping the Future: Education and Post-Conflict Reconstruction, 2005. Hereafter: WB, Reshap-
ing the Future, 2005.
686. Sinclair, Planning Education in and After Emergencies, 2002.
687. INEE, “Minimum Standards for Education,” 2004.
including designing their own educational activities. This can be a basis for reform. Be
aware, though, of the danger of local power politics hijacking the process and using it
to increase the power of one group over the other.688
10.6.5 Assess the context-specific relationship between education and conflict. Education
reform and development should be based on a complete overview and conflict analysis of
the education system.689 Conflict analysis should be present in every aspect of planning,
from emergency education to education system reform. It should provide a thorough
understanding of the relationship, both positive and negative, between the education
system and the conflict, focusing particularly on the role played by government involve-
ment, curriculum, language, religion, and teachers and teaching methods. It should also
evaluate the impact of the conflict on the education system, which is often devastating.690
Finally, conflict analysis should identify conflict reduction measures that can be included
in a long-term, sustainable plan for education reform.691
10.6.6 Develop both a short-term plan for emergency action and a long-term plan for
education reconstruction and development.692 While emergency education programs
will likely be necessary, these programs should be embedded in a long-term strategy of
systematic development and reform. The period following violent conflict offers a society
the opportunity to reform its entire education system. Since this system can drive—and
already may have driven—conflict, it is crucial to rebuild both the physical and human
educational infrastructure in ways that promote peace.693 Prioritize the reconstruction
of basic education,694 but also pay attention to the development of higher education,
including secondary and tertiary education, and nonformal education, such as accelerated
education (which condenses essential primary school classes into fewer years than the
formal primary school system, thus allowing accelerated reentry), life skills training, and
workforce development.695 See Section 9.7.17 for a discussion on human capital develop-
ment. If programs are externally driven, plan for a transition to host nation authorities
when capacities are sufficient; this is a critical step in developing government account-
ability and public perception of legitimacy.696
10.6.7 Insulate the education system from politics. Education systems can be manipu-
lated to spread hatred and serve political agendas. For example, curriculum can be used
to distort history and promote division. Education systems are particularly susceptible
to political influence through intrusion into decision-making. The decentralization of
education without appropriate safeguards—often used as a means to increase owner-
ship, citizen participation, and accountability—can also increase the danger of political
688. UK DfID, “Education, Conflict and International Development,” 2003.

689. Ibid.
692. Sinclair, “Planning Education in and After Emergencies,” 2002.
693. Robert C. Orr, Winning the Peace: An American Strategy for Post-Conflict Reconstruction (Washington, D.C.:
Center for Strategic & International Studies, 2004). UK DfID, “Education, Conflict and International
Development,” 2003.
694. WB, “Reshaping the Future,” 2005.
695. Miller-Grandvaux, “DRAFT Context Paper,” 2009. Sinclair, “Planning Education In and After Emergen-
cies,” 2002.
696. Organisation for Economic Co-operation and Development, Education in Fragile States, 2006.
influence by devolving powers of enforcement to the local level.697 Education reformers

should recognize these dangers and protect the education system through system-wide
development and reform.698
10.6.8 Reduce systemic corruption in the education system.699 Systemic corruption in the
delivery and management of education is closely tied to weak or nonfunctioning gov-
ernments. Corruption may include collection of unapproved fees or bribes, administra-
tion fraud, and favoritism during teacher recruitment or certification.700 Corruption
can be reduced and prevented through proper governance, mechanisms for transpar-
ency and accountability, and host nation capacity building and training.701
10.6.9 Approach: Equal Access
Equal access to education means that all children receive relevant, quality education and
that the population as a whole has means of accessing higher or nonformal education.
Following violent conflict, the affected population places a high priority on returning to
school.702 Access to education can provide children with protection and the community
with a feeling of return to normalcy and stability. For more on access to and delivery es-
sential services, including education, see Section 8.5.11.
10.6.10 Ensure equal access as a mitigator of conflict. Access to education can be used
as a tool for dominance and oppression. Vulnerable groups may be refused access to
education during and after conflict. Security concerns may keep students—girls in
particular—from attending school. Inequality of access based on identity issues—such
as race, ethnicity, gender, and religion—can be a factor in social unrest.703 Likewise,
equal access for all identity groups to education at all levels can be a stabilizing force.
Transparency in education management and accurate monitoring can help assure the
population that everyone will have access to and receive the same education.704
10.6.11 Provide interim emergency education for children. In the emergency phase,
access to the formal education system may be very limited, particularly for vulner-
able groups. These groups must be identified and special care taken to provide them
with relevant, quality education.705 It may be necessary to provide interim emergency
education to ensure the continuation of schooling. This requires educational program-
ming, materials, a safe gathering space, and teachers.706 Education providers may have
to find creative ways to ensure the continuation of education for IDPs and refugees.707
Other alternative emergency education programs may include accelerated learning

698. Ibid.
700. Ibid.
702. Sinclair, “Planning Education In and After Emergencies,” 2002.
706. Save the Children UK defines emergency education as “a set of linked project activities that enable struc-
tured learning to continue in times of acute crisis or long-term instability.” (UK DfID, “Education, Conflict
and International Development,” 2003.)
and distance education programs, skills training, and other nonformal education.”708
As capacity develops, however, education development will increasingly involve more
activities.709
See Gap/Challenge: Section 10.10.4, Emergency education.
10.6.12 Incorporate higher and nonformal education. There are often large numbers of
demobilized young soldiers and war-affected youths and adults who never received
basic education. These populations can be a major destabilizing force. Access to
and delivery of nonformal education such as skills training or accelerated learning
programs can help reintegrate them into society. Secondary and tertiary education
can help provide qualified teachers for the education system and legal, economic,
and other professionals, who are typically in short supply, and offer the population
greater opportunities for advancement.710
10.6.13 Pay attention to refugees and IDPs. The Convention on the Rights of the
Child states that a government may not deny access to education to any child on its
territory. This means that governments must provide access to education to children
in the refugee and IDP population. Take care that education policies do not prevent
these children from enrolling by requiring permanent addresses, identity cards, or
other documents which they may not have. In addition to formal education, refugees
and IDPs may need access to nonformal education such as accelerated learning to
help them reach their appropriate class level. Keep in mind that IDPs may face dif-
ferent challenges to accessing education than refugees, including continued fighting
or remaining internal intergroup tensions.711
10.6.14 View education as a tool for child protection and welfare. Many in the affected
population will experience trauma after violent conflict. Returning to school can be
both a sign of stability to the community and a means of identifying the children
and young people who need psychosocial services.712 Combining nutrition and health
assistance in schools can enhance the welfare of children.713 Schools also provide a
protected space for children, enabling their parents or caretakers to focus on work.
10.6.15 Construct appropriate educational facilities.714 In building school structures,
consider their long-term use, available resources, community participation, and whether
the local community can afford them. Schools should be physically accessible to all,
provide separate sanitation facilities for males and females, and ensure that water is
readily available.
10.6.16 Develop appropriate resource standards and monitor resource use.715 Set clear
standards for the acquisition of equipment, shelter, and materials; develop plans for
meeting these standards; and monitor their implementation. These standards should
709. WB, “Reshaping the Future,” 2005.
712. Ibid.
713. INEE, “Minimum Standards for Education,” 2004. UK DfID, “Education, Conflict, and International
Development,” 2003. Miller-Grandvaux, “DRAFT Context Paper,” 2009.
take into account the need for sustainability. Peg standards to those used by the best of
the public schools, but understand that standards will vary according to each situation.
10.6.17 Approach: Quality and Conflict-Sensitive Education
Depending on what is taught and how it is taught, education in these environments has
the power to either spark renewed conflict or aid in its resolution. This approach is about
the quality of education and the teaching and learning environment that is created for this
conflict-sensitive situation. Quality education should not seek to be neutral but to actively
support the peace process. Quality curriculum includes course materials and instruction
that do not exacerbate tensions from the conflict but promote a shared future of peaceful
coexistence. Quality teaching and administration involves appropriate training in creating
a conflict-sensitive, learner-centered, participatory school environment.716
10.6.18 Ensure that curricula promote peace and long-term development.717 Educa-
tional reforms should identify the role curriculum may have played in aggravating the
conflict. Textbooks that use biased histories and hateful language may have inflamed
tensions. Pay particular attention to the curriculum’s approach to identity issues (in-
cluding religion, culture, and language) and subject areas such as history, geography,
and literature.718 Promote the most inclusive language of instruction as possible in
order not to exacerbate conflicts and differences nor alienate any social groups. This
environment may offer an opportunity to help create a modern education program that
unifies the population behind a common vision for the future.719 When modernizing
curricula, be aware of conflict with local traditions. Working with local traditional and
religious leaders can help ensure that the new curriculum respects the local culture. 720
See Section 9.7.17 for more on the development of human capital.
10.6.19 Enrich curricula with education on life skills.721 Curriculum in these situations
should deliver information vital for the peace process on topics such as health, hu-
man rights, safety, multiculturalism, democracy, conflict resolution, and environmental
awareness. When combined with quality curricula on standard subjects, this informa-
tion can help bring about behavior change in children, youth, and adults that enables
them to live more healthy and peaceful lives.722
10.6.20 Develop and support quality teachers and administrators. The number of teach-
ers and administrators in a country emerging from violent conflict may be greatly
decreased. This can be due to violence directed at teachers, the imprisonment of teach-
ers who engaged in the violence, the emigration of the educated class, or the spread
of disease. Programs and reforms may be needed to recruit and train new teachers
and administrators. Ensure that different ethnic groups and languages, as appropriate,
are represented among them. The quality of training that teachers and administrators
718. Elizabeth A. Cole and Judy Barsalou, Unite or Divide? The Challenges of Teaching History in Societies Emerg-
ing from Violent Conflict (Washington, D.C.: U.S. Institute of Peace, 2006). UK DfID, “Education, Conflict
and International Development,” 2003.
720. UK DfID, “Education, Conflict and International Development,” 2003. OECD, “Education in Fragile
States,” 2006.
receive will be critical to the success of educational reforms. Good teacher training
should begin in refugee camps so that capacity is in place once violent conflict ends,
and good teachers can migrate back home during the repatriation process. Teachers
have the moral responsibility of teaching peacebuilding values and messages and may
face additional challenges such as ethnic tensions or psychological trauma.723 Admin-
istrators must understand how to run comprehensive assessments, to plan and imple-
ment appropriate programs, and to monitor progress.
10.6.21 Promote a student-centered, participatory learning environment.724 Without
the proper classroom and school environment, quality curriculum will be of little use.
In a society emerging from conflict, a student-centered learning environment is even
more significant. This includes student participation, active learning, respect (for
each other and for the teacher), cooperation, teamwork, and student interaction.
Teacher training should emphasize pedagogy, understanding of content, emphasis
on values and attitudes, conflict resolution skills, classroom management, and the
development of student-centered learning approaches. Schools should be man-
aged in ways that welcome teacher input, ensure that student voices are heard, and
encourage community input and parental involvement, particularly in determining
goals, needs, and rules.
10.7 Necessary Condition: Return and Resettlement of Refugees and

Interally Displaced Populations
10.7.1 What is return and resettlement of refugees and IDPs?725 Why is it a neces-
sary condition?
Return and resettlement of refugees and IDPs is a condition in which all individuals
displaced from their homes during conflict are assured the option for a voluntary, safe,
and dignified return to their homes or resettlement into new homes and communi-
ties. Once they reach their destinations, returnees should have recourse for property
restitution or compensation, and should receive strong reintegration and rehabilitation
support to build their livelihoods and contribute to long-term economic and politi-
cal development.726 With proper support, displaced persons can serve as critical and
essential human resources toward the rebuilding of the host nation.727 Return and
resettlement can represent a visible end to violent conflict, legitimize the new political
723. Ibid. OECD, “Education in Fragile States,” 2006.

725. In the context of this chapter, refugees are defined as individuals who are outside the country of their na-
tionality due to well-founded fear of being persecuted for reasons of race, religion, nationality, or member-
ship of a social group or political opinion. This definition is derived from the 1951 Convention Relating to
the Status of Refugees. IDPs are defined as “persons or groups of persons who have been forced or obliged
to flee or to leave their homes or places of habitual residence, in particular as a result of or in order to avoid
the effects of armed conflict, situations of generalized violence, violations of human rights or natural or
human-made disasters, and who have not crossed an internationally recognized State border.” This defini-
tion is derived from the United Nations Office for the Coordination of Humanitarian Affairs, “Guiding
Principles on Internal Displacement,” 2004.
726. United Nations High Commissioner for Refugees, Framework for Durable Solutions for Refugees and Persons
of Concern, 2003. Hereafter: UNHCR, Framework for Durable Solutions, 2003.
727. Sarah Petrin, Refugee Return and State Reconstruction: A Comparative Analysis (Geneva: United Nations
High Commissioner for Refugees, 2002). Hereafter: Petrin, Refugee Return, 2002.
order, and restore normal life for the conflict-affected population.728 Resolving rights
to nationality, residency, and property will contribute to an effective, trustworthy, and
durable state-citizen relationship.
10.7.2 Guidance for Return and Resettlement of Refugees and IDPs729
10.7.3 Approach: Safe and Voluntary Return or Resettlement
Safe and voluntary return or resettlement involves a guarantee of choice for return and
one of safety for those who choose to return. These processes include reuniting families
and support systems separated because of violent conflict and ensuring a safe and vol-
untary journey for refugees returning to their country of origin, IDPs returning to their
hometowns, or any displaced individuals or groups resettling in new communities.
10.7.4 Understand the situation on the ground in order to plan effectively.730 Planning
requires reliable information about the areas where displaced people seek to return or
resettle, to minimize the challenges they face upon arrival. While it is important to
gather credible information on the numbers and conditions of IDPs and refugees, it is
also key not to jeopardize the security and freedom of movement of displaced popula-
tions. Collecting data for such an assessment will not be easy, as displaced populations
are not always easily accessible. They may not be in camps where they can be regis-
tered, but may have assimilated into local communities or urban areas. Others may
be in hiding or may fear being identified. Before initiating any strategy for the return
of refugees and IDPs, be sure to assess and understand the scope of the problem by
considering the following:
t How many people have been displaced? Is the government understating or
inflating numbers of IDPs or refugees in order to influence outside response?
t To where have people been displaced?
t Are the displaced refugees, IDPs, or both?
t Does the host nation have the capacity to reintegrate the displaced?
t What are the needs of the displaced population?
t What are conditions in the host nation or local communities?
t Are conditions at places of origin or resettlement communities less dangerous
than conditions in the camps for the displaced?
t Do viable resettlement options exist for the displaced?
10.7.5 Ensure voluntary return for refugees and IDPs. Voluntary return or resettlement
is the cornerstone of any assistance related to refugees and IDPs. All displaced persons
should be permitted to make their own decision without coercion or harassment of any
728. Walter Kalin, Durable Solutions for Internally Displaced Persons: An Essential Dimension of Peacebuilding
(Washington, D.C.: Brookings Institution, 2008). Hereafter: Kalin, Durable Solutions for IDPs, 2008.
729. An integrated approach for the return of refugees known as the “4R’s” (repatriation, reintegration, reha-
bilitation, and reconstruction) has been proposed by the word’s leading agency, the UN High Commis-
sioner for Refugees. The approach aims to ensure linkages between the four processes by bringing together
humanitarian and development actors and funds to ensure durable solutions for those who have returned,
poverty reduction, and the creation of good local governance. This requires dedicating greater resources to
creating a conducive environment inside the countries of origin in order to facilitate sustainable repatria-
tion and prevent further displacement of the population. For more, see UNHCR, “Framework for Durable
Solutions,” 2003.
730. Petrin, “Refugee Return,” 2002.
kind, and they should be able to freely choose their place of residence.731 In keeping
with the principle of non-refoulement for refugees, no person should be forced into a
situation in which they may face persecution or death.732 This applies to IDPs as well.
While “right of return” has traditionally referred to the right of refugees to return to
their countries at any time, the concept is increasingly applied to IDPs returning to
their homes. When the prospect of returning causes great fear, however, displaced
populations should always have the option of a safe and assisted resettlement in their
home country, or in the case of refugees, in the present country through asylum or a
third-party country that is able and willing to take them.
10.7.6 Ensure safety of return for refugees and IDPs. Return and resettlement processes
should focus on providing safe passage for displaced populations as they return to
their homes or country of origin. Upon return or relocation, displaced persons should
still receive protection from continued threats of violence, harassment, intimidation,
or persecution. While it is the responsibility of the host nation government to pro-
vide this protection, international actors may have to help maximize equal access for
returnees to security, health, and other public services, along with providing judicial or
legal recourse when needed. The following activities can help improve protection for
returning populations:733
t Disarm and demobilize armed groups. The presence of armed groups will likely de-
ter potential returnees and prevent them from successfully rebuilding their lives
in old or new communities, especially in cases where these armed groups trig-
gered the initial displacement. Disarming and demobilizing such groups sends
a message to the displaced that violent conflict is over and that they can return
safely. See Section 6.7.3 for a discussion about the disarmament and demobiliza-
tion of ex-combatants.
t De-mine the paths and communities of returnees. Land mines and unexploded
ordnance could prevent the displaced from making it to their homes and could
deter those who have yet to begin their journey home. In rural areas, where
people depend on the land for subsistence and livelihood, de-mining farmlands
is necessary for returnees to rebuild their livelihood.734 For more on freedom of
movement, see Section 6.9.3.
t Protect vulnerable groups from abuse. During the return phase, women, children,
and other groups are susceptible to criminal and sexual abuse from those around
them, including other returnees.735 Ensure special protection for these popula-
tions through targeted public security and law enforcement programs. See Sec-
tion 6.8.3 for more on the security of vulnerable populations.
See Trade-off: Section 10.9.3, Responsibility to protect vs. safety of relief workers.
731. UNHCR, “Framework for Durable Solutions,” 2003.
732. Kalin, Durable Solutions for IDPs, 2008.
733. United Nations High Commissioner for Refugees, Guiding Principles on Internal Displacement, 1998. http://
www.unhchr.ch/html/menu2/7/b/principles.htm, accessed June 22, 2009. International Peace Academy,
Housing, Land, Property and Conflict Management: Identifying Policy Options for Rule of Law Program-
ming, 2005. Hereafter: IPA, Housing, Land, Property and Conflict Management, 2005.
734. Brookings Institution and University of Bern, Addressing Internal Displacement in Peace Processes. Peace
Agreements and Peace-Building, 2007. Hereafter: Brookings/Bern, Addressing Internal Displacement, 2007.
10.7.7 Provide refugees and IDPs with full access to the information they need to decide
whether or not to return. One means for doing this is to arrange visits for IDP or refu-
gee representatives to assess the conditions of the potential destination. Women and
members of different ethnic, racial, religious, and political groups should be included
as much as possible on these trips.736 Important information should be available in a
language understood by the population and should include the following:737
t The political and security situation of intended destinations, including freedom
of movement; amnesties; and the availability of assistance and protection for
women, children, minorities, and other vulnerable groups.
t A realistic assessment about whether the causes of displacement have been
resolved and about the availability of reintegration assistance. If the situation
remains dangerous, keep displaced populations informed and be careful about
offering return assistance.738
t Procedures for returning or resettling, including details on what items can be
brought for the journey, required documentation, available modes of transporta-
tion, and other administrative requirements.
t Information about landmine risks, potential housing disputes, opportunities for
employment, and availability of public services and facilities.
10.7.8 Develop internal resettlement alternatives for those who decide not to return to
their original homes. Some of the displaced may choose not to return to their previous
homes for fear of discrimination or violence. Others may return to find their homes
destroyed or land unusable as a result of landmines or ongoing occupation by militias.
In these cases, resettlement should remain a viable option with appropriate compen-
sation. In certain cases, the restitution of property to some returnees will result in
the eviction of other displaced persons who have moved in since the displacement.
Measures need to be taken to ensure that upon eviction, these persons will be able
to find adequate shelter and compensation if they cannot have access to their own
properties.739
10.7.9 Manage refugee returns as far from the border as possible. The best strategy for
managing refugee returns and reducing the risk of chaos and violence is to do so as
far from the border as possible. This allows for the proper preparation of refugees and
border officials (and security officials) so all know what to expect. Those who pose
security risks can be dealt with or screened before entry rather than after entry. Strong
pre-entry and entry controls enhance security, reassure refugees, and reduce unauthor-
ized movements of people, particularly reducing the exploitation of refugees by human
smugglers.
736. Kalin, “Durable Solutions for IDPs,” 2008.

737. Ibid.
738. Barry N. Stein, “Refugee Repatriation, Return, and Refoulement During Conflict,” presented at the United
States Agency for International Development Conference Promoting Democracy, Human Rights, and Rein-
tegration in Post-conflict Societies (October 30–31, 1997). Hereafter: Stein, “Refugee Repatriation,” 1997.
739. Brookings/Bern, “Addressing Internal Displacement,” 2007.
10.7.10 Approach: Property Dispute Resolution

Efficient and effective property dispute resolution is a major gap in many S&R missions
and poses serious challenges to political stability.740 During violent conflict, many homes
and properties are destroyed, along with property titles and records. Disputes arise when
displaced persons return, seeking to reclaim their houses, land, or property. The situation is
further complicated by massive population displacement, illegal occupation of houses and
buildings, conflicting claims to property, absence of documentation to determine resolu-
tion, and discrimination against women in accessing land.741 Common means for dispute
resolution include restitution of property and compensation for resettlement.
10.7.11 Address property disputes to encourage the return of displaced populations.
Without a level of confidence that they will have homes to return to, many displaced
populations may opt not to return, or may simply occupy homes that belong to other
displaced persons, further complicating the situation. To mitigate this problem, estab-
lish a transparent process for handling property claims/disputes and for addressing
land policy, along with a plan for constructing shelters as needed.742
10.7.12 Base resolution processes in a legal framework to ensure consistency and enforce-
ability. In defining the kinds of homes, land, and property that should be subject to
restitution or compensation, consider both formal property and tenure laws, as well
as informal practices.743 A formal land law should also be established to govern land
rights, the status of registered land titles, the recognition of traditional rights to land,
and the regulation of land rental markets or land transfers.744 In the midst of conflict,
land records are often destroyed or misplaced. Where possible, it is necessary to col-
lect, restore, or reestablish records quickly to prevent and resolve property disputes.745
Mechanisms for resolution should be linked to local reconciliation and transitional
justice mechanisms, since they can also be the source of further conflict if badly man-
aged.746 Don’t rule out local informal mechanisms for resolving disputes, particularly
in countries with complex legal frameworks, disputed records, and weak enforcement.
See also Section 7.8.15. To ensure that decisions are binding and to limit corruption
and other illicit property activities, legal means of enforcement will be necessary.747 For
more on legal reform and property rights, see Section 7.5.9.
See Gap/Challenge: Section 10.10.7, Effective property laws.
10.7.13 Return property lost during conflict to its original owners where possible and
offer compensation for those who must resettle. Where clear ownership can be proven,
property should be restored to the owners who lost it as a result of the conflict. This
may require evicting other displaced persons who have been using the abandoned
property for shelter and finding alternative solutions for those evicted. This may
also involve dealing with those who have seized abandoned properties and brought
740. IPA, “Housing, Land, Property and Conflict Management,” 2005.

741. Ibid.
743. IPA, “Housing, Land, Property and Conflict Management,” 2005.
744. Fitzpatrick, “Land Policy,” 2002.
745. Ibid.
them into the illicit property market by either renting or selling them. In some cases,
displaced persons may have forcibly lost claim to their properties before the conflict
on a discriminatory basis by the last administration.748 Efforts need to be taken to
restore these properties to their original owners. Additional compensation for those
who are forced to move or resettle may also be appropriate.
See Trade-off: Section 10.9.5, Giving property to their original owners vs. existing occu-
pants.
10.7.14 Ensure property rights of women, orphans, and other vulnerable populations.
Without a male head of the household, female heads of households or parentless
children often run into obstacles upon return. In the case of divorce, abandonment,
or death of the male, women or children often hold no formal claim to property.
These problems prevent them from submitting claims for repossession or recon-
struction of their houses. Procedures should be put in place to ensure that these
vulnerable groups are given proper compensation and shelter and to address
inequalities and discrimination.749 In certain cases, people may hold traditional,
informal claims to property, which are typical for minorities or indigenous people
who have been residents of the land and lack recognition by formal authorities.
Recognize these traditional claims and provide the property owners with formal
titles to the property so that they may return to their lands without fear of further
conflict.750
10.7.15 Allocate properties for community and commercial uses as needed. Even while
property is being fought over for purposes of shelter, putting property aside for com-
munity and commercial purposes remains vital to the reintegration and rehabilitation
of a community.751 Homes are not the only forms of property lost amidst conflict.
Farmers and fisherman may return to find their equipment and livestock destroyed.
Try to provide compensation support to those who have lost infrastructure or other
forms of property that serve as the means for livelihoods.752 International players in a
reconstruction zone will also need buildings or headquarters from which to operate.753
10.7.16 Approach: Reintegration and Rehabilitation
Upon arrival at their new destinations, those who return or resettle will need reintegration
and rehabilitation support to promote long-term economic and social development. A
major gap exists in transitioning seamlessly from the return or resettlement processes to
sustainable development activities. The latter activities are vital to ensure that people who
return or resettle are not abandoned but are given the support needed to rebuild their lives
over the long term.
See Gap/Challenge: Section 10.10.6, Long-term development needs of returnees.
10.7.17 Promote self-reliance and empowerment of refugees and IDPs to prevent
dependency on aid.754 Displaced people need to be given opportunities to be pro-
748. Ibid.
750. Ibid.
752. Ibid.
753. Ibid.
ductive and self-reliant, as opposed to being passive recipients of aid. This requires
that the host nation government treat displaced populations as contributors to local
development and that these groups have access to socioeconomic activity. This will
involve gradually integrating education, health, agriculture, and livelihood-promot-
ing activities that link up with longer-term development programs.
10.7.18 Recognize that displaced populations represent a rich body of potential human
and material assets and resources.755 Refugees and IDPs bear characteristics of resilience,
courage, and determination to thrive and employ a rich set of skills to survive. To de-
velop their human potential, it is important to provide this group of people with oppor-
tunities for education, skills training, and income-generating initiatives. If they are not
provided such opportunities, displaced populations can become sources of instability.
Male refugees, in particular, sometimes turn to violence, exploitation, and other crimi-
nal activities when they are disempowered by their experience as refugees or displaced
people. Communicate to communities the benefits of welcoming returnees and new set-
tlers, including the influx of new skills, resources, higher education, health and gender
equality, which they may have gained during the period of displacement. Try to preserve
these gains when people reintegrate back into more traditional social structures.756
10.7.19 Create an environment that sustains return.757 Physically helping displaced
people return or resettle is only the first step of many. The environment to which the
displaced return should be comfortable enough for them to remain and rebuild their
lives. If the host nation or community cannot properly absorb them, a new wave of
displacement can occur.758 Good local governance, protection of the rights of com-
munities, social services, economic revival, livelihood creation, and improved access to
services help prevent further displacement of the population.759 Plans should include
programs to reunite families and offer support systems for those who were separated
during the repatriation process.
t Access to essential services and livelihood opportunities. Return and resettlement
populations should be assured access to essential services. In addition to shelter,
water, food, sanitation, and health services, infrastructure and education should
be readily available in the local community in order to sustain its population at
the most basic level and serve as a platform for further reconstruction and de-
velopment.760 Providing these populations with access to livelihoods will enable
them to rebuild their lives and give them a sense of ownership in the reconstruc-
tion of the country.
t Reunification of families. Reuniting family and friends helps returnees to feel
comfortable in their new communities. Intimate and familiar relationships are
key to a person’s psychological support system. When families are unable to
reunite in their own communities, secondary migration is common.761
755. Ibid.
756. UNHCR, Handbook for Emergencies, 2000.
t Redevelopment of local communities through processes to promote peaceful coexistence.

Processes to promote reconciliation among members of a community should be
implemented to build a new support system and preventing new or old tensions
from arising.762
t Revitalization of civil society. A functioning civil society at a grassroots level is
critical to the reconstruction of community identity. By giving a voice to those
who were most likely silenced during conflict, civil society is an important
element to the reintegration process.763 See Section 8.8.3 for more on civil
society development.
t Host nation presence at the local level. The national government will not be per-
ceived as legitimate by rural populations if it is seen merely as a distant power.
Once the government has assisted in repatriation it should maintain visibility
at the local level, assisting and supporting the local population, and enabling
them to feel like part of the new state. Lack of assistance and support at a local
level will encourage some returnees to move to larger cities, where prospects for
assistance from the national government are higher.764 See Section 8.6.11 for a
discussion on strengthening subnational governance institutions.
t Adequate rights for returnees in old and new communities. Steps aimed at ensur-
ing transitional justice are necessary, taking into account displaced persons’
rights to restitution, compensation, rehabilitation, reparation, and guarantees
of non-repetition. If justice is not assured, further inter- and intra-communal
tensions over access to land, water, and other resources are likely.765 Protections
against discrimination based on ethnicity, background, or the basis of hav-
ing been displaced should be enforced. See Section 7.7.3 for a discussion on
transitional justice.
10.7.20 Through conflict-sensitive development, strive to build the following characteris-

tics in the returning or resettling populations:766
t Economic characteristics. Displaced people become less reliant on aid, attaining
self-reliance and are able to pursue sustainable livelihoods. Economic integration
allows refugees to better interact with the local population, as they are viewed as
contributors rather than as a burden.
t Social and cultural characteristics. Interactions between displaced populations and
local communities enable peaceful relations and encourage returnees and new
settlers to live amongst or alongside the host population. Displaced populations
can live without discrimination or exploitation and can contribute to the devel-
opment of their host communities.
t Legal characteristics. Displaced groups are granted a progressively wider range
of rights by the government, which are equal to those of citizens. These include
762. Stein, “Refugee Repatriation,” 1997.
763. Ibid.
freedom of movement; access to education, employment, and public services; the

possibility of acquiring and disposing of property; and the capacity to travel with
valid travel and identity documents. Eventually, refugees and IDPs should receive
permanent residence rights and perhaps citizenship in the country of settlement.
10.8 Necessary Condition: Social Reconstruction

10.8.1 What is social reconstruction? Why is it a necessary condition?
Social reconstruction is a condition in which the population achieves a level of toler-
ance and peaceful co-existence; gains social cohesion through acceptance of a national
identity that transcends individual, sectarian, and communal differences; has the mech-
anisms and will to resolve disputes nonviolently; has community institutions that bind
society across divisions; and addresses the legacy of past abuses. For the social well-be-
ing of a society, social reconstruction includes twin approaches: directly addressing the
legacy of violent conflict through inter- and intra-group reconciliation767 and indirectly
building societal links768 by promoting reconciliation through community-based de-
velopment and cooperative action.769 Following violent conflict, social cohesion may be
almost nonexistent. Returnees, combatants, and victims of the conflict often have great
difficulty finding their place in the community again. Disputes over land, water, pasture
rights, inheritance, marriage, and other community issues may arise, further affecting
already traumatized communities. Local institutions—both formal and informal—that
helped bind the population before the conflict may be shattered. Spoiler narratives and
impromptu war memorials that reinforce societal cleavages may be present. Without
the tolerance and cohesion that enables peaceful coexistence, individuals and commu-
nities may resort to violence to address their grievances and resolve disputes.
10.8.2 Guidance for Social Reconstruction
10.8.3 Approach: Inter- and Intra-Group Reconciliation
Reconciliation is a contentious term. The controversy derives from its meaning as both
a goal and a process.770 While reconciliation may not be a realistic end goal within the
time constraints of a typical S&R mission, reconciliation processes are still crucial to the
social recovery and development of the population. Simply put, reconciliation is a process
through which people move from a divided past to a shared future, the ultimate goal be-
ing the peaceful coexistence of all individuals in a society. Reconciliation programs seek to
promote tolerance and mutual respect, reduce anger and prejudice from the conflict, foster
intergroup understanding, strengthen nonviolent conflict resolution mechanisms, and heal
the wounds of conflict. As well as address the causes of conflict, reconciliation can deter
future violence and violations of human rights.
10.8.4 Assess existing sources of conflict to restore social capital and promote reconciliation.
767. “Reconciliation” is a term widely used but rarely defined in this context and with few literal translations in
other languages. For the purposes of this manual, reconciliation will be treated as a process that occurs on
many levels at once—personal and societal, legal, political, and economic.
768. Organisation for Economic Co-operation and Development, Reconciliation: Development Assistance Com-
mittee Issues Brief, 2005. Hereafter: OECD, Reconciliation, 2005.
769. United States Agency for International Development, Community-Based Development in Conflict-Affected Ar-
eas: An Introductory Guide for Programming, 2007. Hereafter: USAID, Community-Based Development, 2007.
770. Judy Barsalou and Victoria Baxter, The Urge to Remember (Washington, D.C.: U.S. Institute of Peace, 2007).
Hereafter: Barsalou/Baxter, The Urge to Remember, 2007.
While many definitions exist, social capital is widely understood to be the resources that
create a strong network of institutionalized relationships.771 To restore social capital in a
war-torn country, be sure to understand underlying social cleavages that create conflict
and tension. Assess the distribution of resources across society and the opportunities
for individuals and groups to access those resources. Reliable delivery of and access to
essential services builds vertical capital. For more on delivery of services, see Section
8.5.11. Community and intergroup reconciliation builds horizontal capital. In a society
emerging from conflict, resolving the status of marginalized groups—including minori-
ties, refugees, and IDPs—is necessary to build social capital. Individual human capital,
such as skills and dignity, should also be preserved and supported.772
10.8.5 Understand the cultural context to shape strategies for promoting reconciliation.
Reconciliation processes are delicate and highly political in nature and should be
grounded in the culture.773 To mitigate potential skepticism and fear about biases and
intentions, reconciliation programs should involve all of society, including everyone
from high-level politicians down to the ordinary survivor.774 Creating effective rec-
onciliation programs requires assessing the social, political, economic, and cultural
context before determining the best methods. Restoring social relationships success-
fully involves paying close attention to cultural or traditional mechanisms that exist
for dealing with crises. It also entails assessing popular support for these processes
to ensure that programs will be effective and that victims do not feel pressured into
participating.775
10.8.6 Build on indigenous practices for healing and acknowledging wrongdoing. To
ensure effective social recovery, be sure to assess the traditional or cultural means a
society may have for acknowledging past misdeeds.776 Rather than displacing these
mechanisms, build on them and use them in ways that can be constructive toward the
reconciliation process.777
10.8.7 Ensure host nation ownership over the reconciliation process. Host nation own-
ership is vital to success; reconciliation cannot be imported. Reconciliation processes
should be led and implemented by the host nation population, not international actors.
Consulting with the population on the design and implementation of the programs
is essential to ensure that the efforts are locally driven.778 On the other hand, the role
of international third parties can also be helpful as an honest broker. Leaders of these
processes need to understand that they require political will from host nation leaders, a
771. The definitions of vertical social capital (“relations between state, market, and civil society”) and horizontal
social capital (“the nurturing of trust and civic engagement among like and diverse groups”) can be found
in World Bank, Violent Conflict and the Transformation of Social Capital: Lessons from Cambodia, Rwanda,
Guatemala, and Somalia, 2000. Hereafter: WB, Violent Conflict, 2000.
772. Brookings Institution, Rethinking “Relief ” and “Development” in Transitions from Conflict, 1999. Hereaf-
ter: Brookings, Rethinking Relief and Development, 1999.
773. OECD, “Reconciliation,” 2005. United States Agency for International Development, Promoting Social
Reconciliation in Post-Conflict Societies, 1999. Hereafter: USAID, Promoting Social Reconciliation, 1999.
774. OECD, “Reconciliation,” 2005.
775. Ibid. USAID, “Promoting Social Reconciliation in Post-Conflict Societies,” 1999.
776. Rosalind Shaw, Rethinking Truth and Reconciliation Commissions. Lessons from Sierra Leone (Washington,
D.C.: U.S. Institute of Peace, 2005. Hereafter: Shaw, Rethinking Truth and Reconciliation, 2005.
777. USAID, “Promoting Social Reconciliation,” 1999.
778. Ibid.
degree of buy-in from the local community, and dedicated resources.

10.8.8 Recognize that reconciliation is an ongoing process—not an end goal—that may
last for generations. Reconciliation is an extremely complex and multifaceted process
that can be strongly impacted by political, economic, and cultural variables that are not
always easy to measure or manage. Forgiveness and healing are very personal processes
that may require time and nuanced approaches to promote. Because the process may
take a very long time, it is absolutely critical to be explicit about the time frame and
expectations of the process.779 The host nation government and civil society, therefore,
should be prepared to continue promoting reconciliation processes from many differ-
ent angles and over an extended period of time.780
10.8.9 Pay attention to sequencing.781 In undertaking reconciliation processes, tim-
ing and sequencing is crucial. Immediately after violent conflict ends, collection of
evidence and witness statements should occur as soon as possible, when memories are
still fresh and the destruction of critical war crimes evidence can be avoided. However,
other processes, such as truth telling, may be best implemented after people have had
time to absorb their experiences, resources have been secured, and a sound program has
been developed through broad consultation with various groups. Rushing into recon-
ciliation processes too quickly, when wounds are still raw and resources are scarce, can
be a risky move.
See Trade-off: Section 10.9.6, Pursuing reconciliation vs. stability.
10.8.10 Consider the many different strategies that exist to promote reconciliation
processes. No single effort can solve all of the problems of a society emerging from
conflict, but collectively, they can contribute greatly to social reconciliation.782 See
Section 7.7.3 for a discussion of transitional justice.
t Truth telling. While there are many variations, this strategy generally involves
the public recounting of memories of violence and is one of the most common
techniques for confronting the past. Truth telling is founded on the idea that
a comprehensive understanding of the conflict can help to restore social rela-
tionships. Truth telling is sometimes described as historical justice or means of
setting the record straight. This strategy is often pursued through the establish-
ment of truth commissions, which seek to uncover the past and bring to light
the violations that occurred on all sides of the conflict.783 Truth commissions are
generally understood to be:784
t Temporary bodies, usually in operation for one to two years
t Nonjudicial bodies with some degree of independence
t Officially sanctioned, authorized, or empowered by the host nation government
779. Ibid.
780. Judy Barsalou, Trauma and Transitional Justice in Divided Societies (Washington, D.C.: U.S. Institute of
Peace, 2005). Hereafter: Barsalou, “Trauma and Transitional Justice,” 2005.
781. Barsalou/Baxter, “The Urge to Remember,” 2007.
782. Barsalou, “Trauma and Transitional Justice,” 2005.
783. USAID, “Promoting Social Reconciliation,” 1999. Institute for Democracy and Electoral Assistance
(IDEA), Reconciliation After Violent Conflict: A Handbook, 2003. Hereafter: IDEA, Reconciliation After
Violent Conflict, 2003.
784. IDEA, “Reconciliation After Violent Conflict,” 2003.
t Created at a point of political transition.

Truth commissions typically:
t Investigate patterns of past abuses and specific violations committed over a
period of time, not just a single specific event
t Focus on violations of human rights and sometimes of humanitarian norms
t Complete their work with the submission of a final report that contains con-
clusions and recommendations.
t Peace commissions. Peace commissions play a role in fostering tolerance, promoting
dialogue, and preventing violence.785 Means for doing this include mediating among
groups, offering peace education and training through community programs, and
countering rumors that may contribute to instability. Peace commissions typically
comprise local leaders and representatives of the broader community.
t Retributive justice and dispute resolution mechanisms. The prosecution of war
crimes is an important aspect of the reconciliation process, as it holds war
criminals and human rights violators accountable for their actions. But just as
important are the other forms of justice, such as the issuance of reparations to
victims, the documentation of truth, and mediation of ongoing disputes through
traditional mechanisms. Retributive justice also entails strengthening the rule
of law system to combat impunity and ensure the protection of human rights.
Retributive justice contributes to reconciliation by:786
t Discouraging revenge
t Protecting against the return to power of perpetrators
t Fulfilling an obligation to the victims
t Individualizing guilt
t Strengthening legitimacy and process of democratization
t Breaking the cycle of impunity.
t Restorative justice.787 Restorative justice mechanisms are often employed as an
alternative or a complement to retributive justice efforts. While retributive
justice focuses primarily on the perpetrator, restorative justice engages the victim,
the perpetrator, and the broader community in an effort to restore relationships
destroyed as a result of violent conflict. Rather than focusing on punishment of
the perpetrator, restorative justice mechanisms emphasize getting perpetrators to
accept responsibility for their actions. One model for restorative justice involves
a mediation process where willing victims meet with willing perpetrators to ex-
plore and express their feelings about the facts surrounding an offense and seek
to mend relationships.
t Lustration. Lustration is the administrative step of barring a whole class of
individuals from public employment, political participation, and the enjoyment
of other civil rights based on involvement with a prior regime. Many variables
to consider when using lustration include to what extent the group being barred

787. Ibid.
has been defeated or discredited, its social influence, and its potential for mount-
ing resistance.
t Reparations. Reparations are a form of justice that seeks to compensate victims
for their losses and to acknowledge the violations they suffered. Many terms
exist to describe similar concepts as the idea has evolved over time: restitution,
compensation, rehabilitation, or satisfaction and redress. Reparations may be an
important element of the reconciliation process for vulnerable populations that
suffered from the conflict, such as youth, women, torture victims, and ethnic
minorities. When considering using reparations, be aware that victims may feel
that they are simply being paid off. Reparations processes can be expensive and
typically employ direct financial transfers, but can also include grants for victims’
children or targeted programs for groups or regions that suffered greatly.788
t Mass media. Radio, television, and art are all media through which peace mes-
sages and peace education can be promulgated in an effective way. UN missions,
for example, often establish UN radio through which peace messages are com-
municated, including providing information on disarmament and demobiliza-
tion sites, dispelling rumors, countering hate speech, and providing a forum for
dialogue.
t Healing. Healing is broadly defined as any strategy or activity that seeks to
promote the psychological health of individuals after they have experienced
trauma. Healing processes are lengthy, intensive, and are often linked with the
rehabilitation of national and local communities to restore a sense of normalcy
and belonging.789
t Memorialization. Memorialization is a process that, when properly constructed,
can honor victims and serve as a tool to address the past and promote a peaceful
future. By educating and reminding people about the past, memorialization aims
to prevent the renewal of conflict and to aid in social reconstruction by creat-
ing a “never again” mentality.790 Experience shows that memorials that prompt
survivors to examine contested recollections of the past and facilitate exchange
across ethnic, cultural, and religious groups can advance social reconstruction. It
also shows, however, that impromptu memorials run the risk of reigniting old
tensions. Build memorialization initiatives with intensive, deliberate, and locally
led consultation and design, based on a thorough understanding of the following
local context; beliefs about death and burial, grieving, revenge, and justice; and
important cultural, historic, and other symbolic sites and document collections.791
Explore how transitional justice processes can relate to memorialization.
10.8.11 Be prepared to provide necessary security.792 Some reconciliation processes can stir
strong reactions from victims and perpetrators, which can result in violence from those
788. Grossmann, Georg and Hildegard Lingnau, Addressing the Past—Fostering Reconciliation (Berlin:
Deutsche Gesellschaft fur Technische Zusammenarbeit, 2003). Hereafter: Grossmann/Lingnau,
Addressing the Past, 2003.
790. Barsalou/Baxter, “The Urge to Remember, 2007. Ibid.
791. Ibid.
792. Shaw, “Rethinking Truth and Reconciliation,” 2005. IDEA, “Reconciliation After Violent Conflict,” 2003.
who seek to undermine those processes. Because of the political volatilities, a credible
guarantee of security is vital to the success of these processes and to ensure public par-
ticipation in them, particularly in truth telling processes and in administering retributive
justice. Common fears include victims’ fear of retaliation by perpetrators, perpetratorsí
fear for their own lives after testifying, fear of government reprisals, and fear that testi-
monies given in truth commissions will be used in legal prosecutions.
10.8.12 Approach: Community-Based Development
Community-based development, long separated in official guidance from governance,
humanitarian assistance, reconstruction, and reconciliation, is now understood to unite all
of these fundamental activities in conflict-affected societies through community-driven
processes that have stood the test of time and been applied in dozens of missions.793
Development that brings representatives of divided societies together helps them learn
to govern and reconcile while rebuilding their shattered communities. This approach can
rebuild social capital and trust within and between communities.794
10.8.13 Build relationships and trust through collaborative development processes.795

This collaborative approach should be considered the heart of any strategy to promote
peaceful coexistence and eventual reconciliation.796 The features of development pro-
cesses that aid in reconciliation and promote governance include the following:
t Democratically selected community bodies reflecting the diverse make-up of
localities with a special focus on inclusion of gender and minority representation
t Joint community decision-making to assess and prioritize needs
t Community selection of projects (e.g., schools, community centers, health
clinics)
t Community receipt of aid money and management of the allocation of
resources
t Contribution of labor to reconstruction projects
t Accountability and transparency mechanisms to ensure integrity of the process.
10.8.14 Understand that the development process is as important as the projects. The
process outlined above, and the cooperation and solidarity it can instill, enables social
reconstruction. Do not rush the process because doing so can exacerbate community
tensions by unleashing a new contest for power. Be patient because building demo-
cratic processes in this manner may mean that projects take longer to complete.797
10.8.15 Provide resources to ensure sustainability. In every S&R mission for the past
two decades, community-based development programs have been launched to pro-
mote reconstruction and reconciliation. Many of these programs suffer from a lack
of sustained resources, which can undermine the legitimacy of the peace process and
793. USAID, “Community-Based Development,” 2007.

794 115 Ibid.
796. Models for this approach include the Municipal Development and Citizen Participation Project (in El
Salvador), the Community Assistance Program (in Iraq), Community Improvement Councils (in Kosovo),
and the National Solidarity Program (in Afghanistan).
797. United States Agency for International Development, Office of Transition Initiatives, Guide to Program
Options in Conflict-Prone Settings, 2001.
reconciliation prospects. This requires a commitment of aid money to the community-

based development program, as well as capacity-building and technical support for the
process.798
10.8.16 Ensure inclusion and transparency to promote reconciliation and healing. Include
all stakeholders in community-based development decision-making structures, par-
ticularly marginalized groups that have been excluded in the past. These often include
women, minorities, youth, and the disabled. Transparent and participatory approaches
include access to project records, routine reporting to the community on the progress
of development programs, and monitoring by media and civil society organizations.799
10.9 Trade-offs
10.9.1 Delivering assistance through host nation vs. international capacity.800 In the emer-
gency phase, conflict-affected populations may need immediate survival assistance (water,
food, shelter, and health services) that only international actors are equipped to deliver.
Delivering aid through international organizations, however, can promote a culture of de-
pendency and thwart the development of host nation capacity if sustained for an extended
period of time. To minimize this impact, balance the demand to meet emergency survival
needs with opportunities to promote host nation capacity.
10.9.2 Meeting immediate survival needs vs. instability.801 While there may be an urgency
to meet immediate survival needs, humanitarian assistance can be captured by insurgents
or rebel groups and redirected to support those engaged in the conflict. Also, relief, if
directed more toward families of combatants, can create perceptions of inequity from vic-
tims of the conflict and create tensions.802 Plan relief efforts carefully and monitor delivery
to mitigate potential negative consequences.
10.9.3 Responsibility to protect vs. safety of relief workers. The humanitarian crisis in a
war-torn country may be severe, demanding urgent delivery of basic needs for survival.
But the severity of a crisis can also mean that the security situation in the country or
region is very untenable and unpredictable, placing relief workers at great risk.803 Ensure
adequate security for staff workers who must go into danger zones to provide relief.
10.9.4 Rapid return of displaced populations vs. instability.804 Having displaced populations
return to their homes creates a positive sign for the prospects of peace. However, encourag-
ing large populations to return without proper groundwork can simply create greater prob-
lems, including further internal displacement. Prepare receiving communities for the influx,
provide security guarantees, establish property dispute mechanisms, and offer economic
and humanitarian assistance to prevent instability.
10.9.5 Giving property to their original owners vs. existing occupants. Returning prop-
798. WB, “Violent Conflict,” 2000.

799. Ibid.
800. United States Agency for International Development, U.S. Foreign Aid: Meeting the Challenges of the
Twenty-First Century, 2004.
801. Fiona Terry, Condemned to Repeat (Ithaca and London: Cornell University Press, 2002).
802. Brookings, “Rethinking Relief and Development,” 1999.
803. Ibid. UN WFP, Emergency Food Security Assessment Handbook, 2005.
erty back to pre-conflict owners may be ideal and just, but doing so may simply displace
existing occupants who sought shelter in the property during the conflict. Evicting large
numbers of tenants, particularly in a country where property ownership laws are ambigu-
ous, can be very destabilizing. Property dispute mechanisms, compensation arrangements,
and other means to address this recurring trade-off should be planned for in advance.
10.9.6 Pursuing reconciliation vs. stability. In a society emerging from violent conflict, it
can be tempting to forget the past, as remembering runs the risk of reigniting old ten-
sions. But depending on the society, sustainable resolution of the conflict may require that
the population actively seek reconciliation.805 Plan efforts carefully and with great sensitiv-
ity to timing, broad participation, and the need for resourcing and sustainability of these
complex reconciliation processes.
10.9.7 Restorative vs. retributive justice. Restorative justice programs focus on restoring
relations between the victim and the perpetrator, but they may fall short of punishing war
criminals and human rights violators. Retributive justice programs hold these criminals
accountable for their actions, but do not necessarily strengthen the community’s social
bonds, which can cause problems down the road. Balance these approaches based on the
local environment and their potential for supporting long-term stability.
10.10 Gaps and Challenges

10.10.1 Protection of humanitarian space. In today’s environments, humanitarian ac-
tors often find themselves operating in the same space with intervening military forces
conducting S&R activities. This can place relief workers in jeopardy when their actions
are no longer perceived to be independent from the military or impartial with regard to
assistance. Pay close attention to guidelines to help mitigate the negative consequences of
this recurring challenge affecting humanitarian space.806
10.10.2 Aid effectiveness. While development aid to peaceful countries is frequently
monitored and evaluated, similar mechanisms to assess the effectiveness of aid in societies
emerging from violent conflict are lacking.807 A massive waste of resources, inappropriate
aid programs, and a failure to achieve timely results are hallmarks of many S&R missions.
Monitoring and evaluation must be part of planning and should be resourced adequately to
ensure that aid is benefiting stabilization and reconstruction.
10.10.3 Transition from relief to development activities. A major S&R challenge in-
volves facilitating a smooth transition from relief activities focused on short-term sur-
vival needs to development activities that promote long-term growth. Better coherence,
coordination, and collaboration, between relief and development strategies can ensure
a seamless transition between the communities of practice. This is particularly true in
the education sector, where a variety of humanitarian and development programs occurs
simultaneously.808
805. Parliament of Burundi, Inter-Parliamentary Union, and the International Institute for Democracy and
Electoral Assistance, “Summary and Recommendations Presented by the Rapporteur of the Seminar,
Regional Seminar on the Role of Parliaments in the National Reconciliation Process in Africa,” 2005.
806. United States Institute of Peace, InterAction, United States Armed Forces, Guidelines for Relations Between
the U.S. Armed Forces and Nongovernmental Humanitarian Organizations, 2007.
807. Brookings, “Rethinking Relief and Development, 1999.
808. WB, Reshaping the Future, 2005. UK DfID, “Education, Conflict, and International Development,” 2003.
10.10.4 Emergency education. Education is still most commonly viewed as a development

or reconstruction issue, which can prevent children in emergency situations from receiv-
ing education for extended periods of time.809 If emergency education is not provided
early on, the delay can cause irreparable damage to the rebuilding of lives and livelihoods.
Emergency international standby capacity, already inadequate, needs to be developed as
a priority.810 Plans for secondary and tertiary education, which are critical for long-term
social and economic development, should be included as part of an emergency education
strategy.
10.10.5 Youth in recovery efforts. While there is recognition that youth should be engaged
rapidly and early on in these environments, few programs properly address their needs.
Neglecting youth populations can also have negative consequences for stability when
youth who are unemployed or not in school join criminal gangs or militias, turn to pros-
titution and trafficking, or engage in other illicit activities. Develop practical programs
that harness and develop the potential of this population and include them in efforts to
rebuild their country.811
10.10.6 Long-term development needs of returnees. The host nation and the international
community often consider the return of the displaced the end goal. The systematic failure
to incorporate the needs of the returnees in any strategic development plan leaves them
in deprived conditions for long periods of time and undermines recovery.812 Programs to
address the need of returnees to have productive livelihoods and receive essential services
are needed.
10.10.7 Effective property laws. Individuals may not have formal land titles or docu-
mentation, but may assert customary or traditional rights to certain properties. Property
resolution processes raise complex questions that bring with them risks of increased
instability.813 Figuring out how to create, reform, and/or enforce property laws quickly and
legitimately is a key S&R job.
10.10.8 Mental health needs of conflict-affected populations. The predominant focus of
health care services for refugees, IDPs, and other conflict-affected populations has been
nutrition, disease prevention, maternal and child health, or the management of infectious
diseases. Resources and attention for mental health and psychological support, however,
are still severely lacking.814
809. UNESCO, “Education in Situations of Emergency,” 2003.

810. Ibid. UK DfID, “Education, Conflict, and International Development,” 2003.
811. WB, Reshaping the Future, 2005. UK DfID, “Education, Conflict, and International Development,” 2003.
814. World Health Organization, Rapid Assessment of Mental Health Needs of Refugees, Displaced and Other Popu-
lations Affected by Conflict and Post-Conflict Situations, 2001.

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S 1

Access to and Delivery Access to and Delivery

Social Reconstruction Right of Return and

10.0 What is social well-being?

10.2 Why is social well-being a necessary end state?

10.3 What are the necessary conditions to achieve social well-being?

621. UNDP/USAID, First Steps, 2007.

10.4 General Guidance for Social Well-Being

10.5 Necessary Condition: Access To and Delivery Of Basic Needs

their dignity.638 Food security includes access to food, affordability of food,

646. Sphere, “Humanitarian Charter,” 2004. USAID, “FOG,” 1998.

vectors, solid waste management, and drainage systems.651 In designing sanitation

10.5.29 Respond appropriately and adequately to victims of sexual and gender-based

10.6 Necessary Condition: Access To and Delivery Of Education

10.6.2 Guidance for Access To and Delivery Of Education

688. UK DfID, “Education, Conflict and International Development,” 2003.

influence by devolving powers of enforcement to the local level.697 Education reformers

697. UK DfID, “Education, Conflict and International Development,” 2003.

10.7 Necessary Condition: Return and Resettlement of Refugees and

723. Ibid. OECD, “Education in Fragile States,” 2006.

736. Kalin, “Durable Solutions for IDPs,” 2008.

10.7.10 Approach: Property Dispute Resolution

740. IPA, “Housing, Land, Property and Conflict Management,” 2005.

t Redevelopment of local communities through processes to promote peaceful coexistence.

10.7.20 Through conflict-sensitive development, strive to build the following characteris-

freedom of movement; access to education, employment, and public services; the

10.8 Necessary Condition: Social Reconstruction

degree of buy-in from the local community, and dedicated resources.

t Created at a point of political transition.

785. USAID, “Promoting Social Reconciliation,” 1999.

10.8.13 Build relationships and trust through collaborative development processes.795

793. USAID, “Community-Based Development,” 2007.

reconciliation prospects. This requires a commitment of aid money to the community-

798. WB, “Violent Conflict,” 2000.

10.10 Gaps and Challenges

10.10.4 Emergency education. Education is still most commonly viewed as a development

809. UNESCO, “Education in Situations of Emergency,” 2003.

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