COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Lives in Dignity: from Aid-dependence to Self-reliance Forced Displacement and Development
Date: 2016-04-26
Institutions: Directorate-General for European Civil Protection and Humanitarian Aid Operations (ECHO), European Commission
Subjects: EU migration policy, development aid, humanitarian aid, illegal migration, integration of migrants, internal migration, refugee, return migration, right of asylum, transfer of population

EN 

   EN 

   EUROPEAN COMMISSION  Brussels, 26.4.2016  COM(2016) 234 final   COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Lives in Dignity: from Aid-dependence to Self-reliance  Forced Displacement and Development {SWD(2016) 142 final}  
 
 
1.  INTRODUCTION 

The  aim  of  this  Communication  is  to  put  forward  a  policy  framework  to  prevent  forced 
displacement from becoming protracted and to gradually end dependence on humanitarian 
assistance  in  existing  displacement  situations  by  fostering  self-reliance  and  enabling  the 
displaced to live in dignity as contributors to their host societies, until voluntary return or 
resettlement. 

The European Union, as an active global player  and a leading humanitarian and development 
donor,  is  committed  to  providing  assistance  to  people  in  need  around  the  world.  It  does  so 
both  in  crises  and  to  promote  countries'  long-term  sustainable  development.  Given  the 
severity of the current refugee and migration crisis, the European Commission put forward a 
comprehensive  and  holistic  approach  in  its  European  Agenda  on  Migration.1 The  Agenda 
calls for a ‘strategic reflection’ on how to maximise the impact of the EU’s development 
and  humanitarian  support  in  order  to  appropriately  tackle  the  magnitude,  multi-
dimensional drivers and impact of forced displacement at local level. 

Globally, more than 60 million people — refugees and internally displaced persons (IDPs) — 
are forcibly displaced by conflict, violence and human rights violations2. This is the highest 
level of forced displacement since World War Two. The five largest refugee displacements 
—  from  Syria,  Afghanistan,  Somalia,  Sudan  and  South  Sudan  —  are  all  protracted3,  with 
many Afghanis displaced for  more than three decades. This protractedness is aggravated by 
the  fact  that  2014  marked  the  lowest  number  of  refugee  voluntary  repatriation  in  three 
decades 4 .  Three  of  the  five  largest  internal  displacements  are  also  protracted  –  Syria, 
Colombia  and  Sudan.  The  Syria  crisis  alone,  now  entering  its  sixth  year,  has  produced  4.7 
million  refugees  and  6.5  million  IDPs,  while  the  EU  received  1  million  refugees  in  2015 
alone. Climate phenomena, such as this year’s El Niño — expected to be the worst in 20 years 
—  can  equally  have  a  considerable  impact5.  The  combined  effects  of  increased  conflict, 
violence,  climate  change,  environmental  and  natural  disasters  will  force  even  more 
people to flee. Background information on the context and drivers of forced displacement, as 
well  as  an  assessment  of  the  existing  Commission  policies,  instruments  and  practice  in 
assisting  refugees,  IDPs  and  asylum  seekers  in  third  partner  countries  can  be  found  in  the 
Staff working document accompanying this Communication. 

In 2015, the United Nations High Commissioner for Refugees (UNHCR) identified the major 
factors that force Syrian refugees in neighbouring countries to seek asylum in Europe. These 
include loss of hope, high costs of living and deepening poverty, and limited opportunities to 
earn  a  living  or  get  education.  Without  development  prospects  and  opportunities  to  enjoy 
social and economic rights, refugees and IDPs are more likely to move outside their regions 
of origin. Secondary  and  multiple  displacements reflect a collective failure to address the 
specific  mid-  to  longer-term  needs  and  vulnerabilities  of  forcibly  displaced  people  and 
their  host  communities  and  to  provide  them  with  durable  solutions6.  The  humanitarian 

1 COM(2015) 240, 13.5.2015. 
2 "World at War. UNHCR: Global Trends, Forced Displacement in 2014", June 2015. 
3 Defined as a situation in which 25 000 or more refugees of the same nationality have been in exile for five 
years or longer in a given asylum country (UNHCR). 
4 UNHCR Mid-year trends 2015, December 2015. 
5 As recognised by Council Conclusions on European Climate Diplomacy after COP 21(02/2016). 
6 The international legal frameworks distinguish three durable solutions for refugees: voluntary repatriation, 
local integration and resettlement. Durable solutions for IDPs can be achieved through sustainable reintegration 
in the place of origin, sustainable local integration in the place of initial displacement or sustainable integration 
in another part of the country. 

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system  alone  cannot  accommodate  the  growing  development  needs  of  forcibly  displaced 
people and host communities. Forced displacement is not only a humanitarian challenge: it is 
also  a  political,  human  rights,  developmental  and  economic  challenge,  in  addition  to  its 
inevitable links with the broader phenomenon of migration. 

While  the  EU’s  immediate  concern  is  forced  displacement  caused  by  the  conflicts  in  its 
neighbourhood,  the  issue  of  long-term  forced  displacement  is  global.  For  this  reason,  the 
Commission’s Communication on the role of EU external action in the current refugee crisis7 
called on the EU and its Member States to commit to do more over the long term to address 
the root causes of migration and displacement. The EU has demonstrated its commitment to 
tackle the root causes of forced displacement at source by stepping up its efforts to prevent 
new conflicts, resolve existing ones and address human rights abuses — all major drivers of 
forced  displacement.  The  ongoing  political  and  diplomatic  commitment  of  the  EU  and  its 
Member States to resolve existing conflicts and promote respect for human rights worldwide 
is  therefore  a  key  aspect  of  this  agenda.  So  is  saving  lives  and  helping  meet  immediate 
humanitarian  needs.  However,  beyond  legal  and  physical  protection 8 ,  food  and  shelter, 
forcibly  displaced  people  also  need  access  to  jobs  and  to  services  such  as  healthcare, 
education and housing. The EU acquis and good practices developed since 1999 to create a 
Common European Asylum System and harmonise common minimum standards for asylum 
can constitute a good example of how partner countries can receive large refugee populations.  

Forced displacement: a protracted and complex problem 

This  Communication  focuses  on  situations  of  protracted  forced  displacement  in  partner 
countries due to conflict, violence and human rights violations, irrespective of the status of the 
displaced  under  the  1951  Refugee  Convention.  Elements  of  the  new  policy  may  also  be 
applicable to displacement caused by natural disasters and climatic events, while recognising 
the different politics, contexts, needs and solutions. Due to lack of sustainable peace in many 
countries  of  origin,  restrictive  host  country  policies  and  limited  resettlement  places,  most 
displaced people live in protracted displacement for more than five years. Few have found 
durable  solutions,  such  as  voluntary  repatriation,  resettlement  or  local  integration.  In  2014, 
while there were 2.9 million new refugees, only 126 800 former refugees could return to their 
countries  of  origin  and  only  105  200  were  permanently  resettled 9 .  Today,  protracted 
displacement lasts on average 25 years for refugees and more than 10 years for 90% of 
IDPs.10 

In  2014,  86%  of  the  world’s  refugees  lived  in  developing  regions  and  the  Least  Developed 
Countries  provided  asylum  to  25%  of  the  global  total.11 This  puts  immense  pressure  not 
only  on  displaced  people  themselves  and  their  host  countries,  governments  and 
communities,  but  also  on  donors.  All  of  these  constituencies  share  a  responsibility  to 
react.  The  pressure  created  by  the  influx  and  long-term  stay  of  displaced  populations  is 
particularly  acute  on  vulnerable  communities,  countries  and  regions.  This  has  a  far-

7 JOIN (2015) 40, 9.9.2015. 
8 Under the Geneva Refugee Convention of 1951 and the Protocol of 1967, recognised refugees have the right to 
international protection. 
9 "World at War. UNHCR: Global Trends, Forced Displacement in 2014", June 2015. 
10 "World at War. UNHCR: Global Trends, Forced Displacement in 2014", June 2015; "Global Overview 2015: 
People internally displaced by conflict and violence", IDMC, May 2015. 

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reaching  impact  on  public  education,  waste  management,  housing  and  property  prices,  on 
amenities  such  as  electricity  and  water  supplies,  on  food  prices  and  wages,  and  on  overall 
stability. With an increasing number of displaced people finding shelter in urban settings, the 
impact on planning and the provision of services is particularly great in cities.  

The  2030  Agenda  for  Sustainable  Development12 recognises  forced  displacement  as  one  of 
the  key  factors  that  threaten  to  reverse  much  of  the  development  progress  made  in  recent 
decades.  For  this  reason,  it  has  included  refugees  and  IDPs  in  the  category  of  vulnerable 
people  who  should  not  be  ‘left  behind.’  While  benefiting  from  humanitarian  assistance, 
forcibly  displaced  people  are  often  excluded  from  programmes  and  activities  carried  out  by 
development  actors.  Host-state  policies  often  restrict  access  to  labour  markets  for  refugees 
and place limitations on their movement and residency within the country. They also prohibit 
upgrading  of  settlements  in  ways  that  foster  permanency  and  make  it  difficult,  if  not 
impossible, to obtain long-term secure legal status. The result of these policies is to maintain 
displaced  populations  ‘in  limbo’  and  ensure  that,  in  the  absence  of  long-term  development 
prospects, they remain in continuous need of support from the humanitarian actors. Refugees 
and IDPs are productive individuals with skills and assets able to contribute to the economy 
and society of host countries or communities. However, without development opportunities, 
the predominant  ‘care and maintenance’ aid dependence model undermines opportunities 
for refugees and IDPs to become more self-reliant13.  

Displacement  situations  are  highly  complex  and  differ  greatly.  Some  refugees  may  initially 
have a greater capacity to cope than their hosts, for example due to savings or close family 
ties  in  the  host  country.  Moreover,  while  host  countries  may  be  receiving  EU  development 
assistance, vulnerable host communities usually do not benefit from humanitarian assistance. 
Populations that remained in their communities of origin, while others were forced to move, 
may also be vulnerable. Voluntary returnees may have relative advantages in terms of skills 
and  capital  they  have  built  up  abroad.  Refugees  and  IDPs  may  face  similar  challenges  to 
rural-to-urban migrants or the wider urban or rural poor. This can lead to tension and conflict 
between communities and, in turn, cause massive secondary displacement. Particularly in the 
case of IDPs and returnees, an undue focus on status also risks clashing with the humanitarian 
principle of providing assistance on the basis of need alone. A status-based approach may also 
be unworkable in situations where motivations for movement are mixed and cumulative, and 
in which vulnerability depends more on individual circumstances than on belonging to a 
specifically defined category or group. 

Therefore,  when  designing  interventions  actual  vulnerabilities  should  prevail  over  legal 
status, in full respect of international and human rights law. The specific protection needs of 
the forcibly displaced must be addressed, based on their gender, age and disability as well as 
their politics, ethnicity, language, caste origin, religion and/or sexual orientation. A 'one-size-
fits-all' approach is therefore not workable. The EU is committed to providing the policy 
framework  for  a  more  efficient,  context-specific  and  dignified  global  response  to  forced 
displacement.  It  intends  to  do  so  by  bringing  together  its  approaches  to  political  issues, 
conflict  prevention,  development,  human  rights  and  humanitarian  assistance,  and  by 
operationally bolstering the resulting nexus. 

12 ‘Transforming our world: the 2030 Agenda for Sustainable Development’, A/RES/70/1. 
13 Self-reliance is the ability of people, households or communities to meet their basic needs and to enjoy social 
and economic rights in a sustainable and dignified way. 

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Building a development-oriented policy framework to address protracted forced displacement 

A  new,  coherent  and  collaborative  policy  framework  needs  to  be  put  in  place.  Political, 
human  rights,  humanitarian  and  development  approaches  must  complement  each  other  to 
create  a  ‘win-win’  scenario  for  both  the  displaced  and  their  host  communities.  This  new 
policy  framework  will draw  on  the  strengths  of  the  EU's  comprehensive  approach14 and  the 
EU approach to resilience.15 The framework will harness the productive capacities of refugees 
and IDPs by helping them to access  education,  housing, land, productive assets, livelihoods 
and services, and by supporting interaction between them and their host community. 

To  implement  the  new  policy  framework  to  operate  effectively,  existing  operational  silos 
must  be  overcome.  Political  actors  need  to  be  more  involved  in  negotiations  to  surmount 
obstacles  preventing  displaced  people  from  developing  their  potential.  Humanitarian  and 
development actors operate within different structural, programming and funding cycles and 
procedures which do not reflect the real long-term needs of the displaced people or the host 
communities. Humanitarian assistance is designed to be used as a short-term measure at the 
outset  of  a  crisis  to  cover  the  immediate  humanitarian  and  protection  needs  of  forcibly 
displaced  people,  whether  in  camps  or  urban  areas.  Development  assistance,  on  the  other 
hand, operates under long multiannual planning and funding cycles. 

Stronger cooperation between development and humanitarian actors — with closer  links  in 
funding  at  programming  level,  exchange  and  assessment  of  information,  and  target 
setting  — can enable the  design of more effective  and lasting protection  and  self-reliance 
strategies. This will benefit displaced people and vulnerable host communities alike. A new, 
development-oriented approach to forced displacement will not lead to additional costs. On 
the  contrary,  over  the  medium  to  long  term  it  will  enhance  efficiency  and  improve 
outcomes for donors and beneficiaries alike by reducing dependence on humanitarian aid and 
maximising the effectiveness of development investment. 

The  role  of  host  governments  is  crucial  as  they  are  responsible  for  the  legal  and  policy 
frameworks  through  which  the  needs  of  refugees,  IDP  and  host  communities  can  be 
addressed. Governments set the parameters for development interventions and the timing and 
space  for  humanitarian  interventions.  Many  host  states  are  often  not  able  to  address  these 
challenges on their own. Substantial investment from the international community is required, 
especially at the local level, to ensure positive outcomes in the longer term and real burden 
sharing. Such investment should avoid discrimination among different categories of forcibly 
displaced people and promote fair and equal treatment by removing barriers to participation in 
labour  markets,  facilitating  access  to  social  services,  upgrading  settlements,  and  acquiring 
long-term secure legal status.  

This  Communication  sets  out  a  new,  development-oriented  policy  framework  to  address 
forced displacement in the form of a series of recommendations. It aims to connect different 
instruments  and  actions  to  ensure  that  the  EU  has  an  effective,  full-cycle,  multi-actor 
approach  to  tackle  forced  displacement.  In  addition,  the  Communication  is  a  call  for 
support  for  this  new  approach  by  our  implementing  partners:  UN  agencies,  international 

14 ‘The EU’s comprehensive approach to external conflict and crises’, JOIN(2013) 30, 11.12.2013. 
15 ‘The EU approach to resilience: learning from food security crises’, COM(2012) 586. 3.10.2012. 

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organisations, non-governmental organisations, civil society organisations (CSOs), the private 
sector and other non-state actors in both the EU and partner countries. 

2.  ELEMENTS OF THE NEW POLICY FRAMEWORK 

2.1. A STRONGER HUMANITARIAN AND DEVELOPMENT NEXUS 

The Commission policy focus has shifted from a linear humanitarian-development approach 
—  linking  relief,  rehabilitation  and  development  (LRRD)  —  to  resilience  building.  More 
recently,  a  comprehensive  approach  integrating  humanitarian  aid,  development  cooperation 
and  political  engagement  was  adopted.  It  is  of  paramount  importance  that  political  and 
developmental  stakeholders,  in  close  cooperation  with  humanitarian  actors,  engage  at  the 
outset  of  a  displacement  crisis.  This  would  ensure  establishment  of  better  responsibility 
sharing  between  humanitarian  and  development  actors,  while  fully  respecting 
the 
humanitarian principles. 

2.1.1.  EARLY INVOLVEMENT OF ALL ACTORS 

The EU should pursue its involvement  through  its  political  and  development  actors  and 
those of the Member States at an early stage of a crisis so as to enable a more coherent and 
coordinated approach. Full respect of humanitarian principles and close coordination with the 
host government are key. The objective is to improve living conditions throughout the whole 
duration  of  displacement  and to implement most effectively solutions  that  can  bring  the 
displacement  to  an  end.  Engaging  simultaneously  a  wide  range  of  instruments,  based  on 
their comparative advantages and under a joint strategic framework, is in line with the EU's 
approach to resilience. This approach requires multilateral  engagement with a wider range 
of political, human rights, development, humanitarian, international, national and local actors 
in which the comparative advantage of each actor can be maximised. To help increase self-
reliance, it is essential that both the displaced people and the host communities take an active 
part in formulating programmes and strategies. This active participation should encompass the 
genuine  and  diverse  needs  and  specific  vulnerabilities  and  capacities  of  people  in  each 
concrete context. 

The  EU’s  conflict  early  warning  system 16  draws  upon  assessments  of  conflict  risk  and 
promotes  early  preventive  action  by  the  EU,  including  in  situations  with  a  risk  of  causing 
forced  displacement.  This  approach  to  conflict  analysis  generates  comprehensive  response 
options, including involvement by EU Member States and key international partners such as 
the UN. 

In  2012,  as  one  of  the  first  development  actors,  the  EU  funded  a  project  to  support  the 
medium- and long-term needs of host communities and Syrian refugees in Lebanon. An early 
stage integrated approach was critical as the host communities and institutions most affected 
by the refugee influx were poorly supported. 

2.1.2.  DESIGNING COHERENT STRATEGIES BASED ON EVIDENCE 

16 SWD(2016) 3, 27.01.2016. 

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The EU’s comprehensive approach to external conflict and crises17 provides an important 
entry  point  for  strategically  coherent  use  of  different  EU  policies  and  instruments  in  close 
cooperation with Member States. Using this entry point would enhance the effectiveness and 
impact  of  the  EU’s  policy  and  action,  especially  since  conflicts  and  crises  have  non-linear 
trajectories.  The  comprehensive  approach  principles  translate  into  acting  preventively 
wherever  possible,  and  into  country-led  strategic  planning  based  on  joint  framework 
documents18 or  equivalent  umbrella  strategies.  These  should  draw  on  existing  research, 
risk assessment and management tools to provide a common evidence-base and include, when 
relevant,  joint  conflict  analysis,  joint  needs  assessment  and  other  related  analyses  of 
protracted displacement situations and drivers. 

Joint  and  comprehensive  country-specific  context  analyses  should 
include  a  joint 
stakeholder  analysis  of  the  policy  environment  and  of  the  institutional  frameworks.  These 
frameworks  should  also  include  durable  solutions  prospect  analysis  and  demographic 
profiling  of refugees,  IDPs and host communities. Principles of privacy and data  protection 
are to be respected when preparing the analyses by consulting beneficiaries.  

A  mapping  of  the  direct  and  indirect  economic,  environmental,  social,  fiscal  and  political 
impacts  of  displacement  can  be  used  as  an  entry  point  for  discussions  with  the  host 
government/local  authorities.  Interventions  would  have  to  retain  sufficient  flexibility  to 
address changing needs and vulnerabilities. 

The result will be more holistic, effective and lasting protection and self-reliance strategies 
for  the  displaced  people  and  provide  them  with  opportunities  for  a  dignified  life,  while 
reducing the impact on host communities. The EU Trust Funds set up for the Central African 
Republic19, in response to the Syrian Crisis (the Madad Fund20), for Africa21, the Facility for 
Refugees in Turkey22 and commitments made at the London conference "Supporting Syrians 
and the region" in February 201623 all reflect this shift towards more holistic strategies. 

The new research and evidence facility of the EU Trust Fund for Africa will provide research 
to inform policymaking and project design throughout the Trust Fund's lifetime. 

2.1.3.  TURNING COHERENT STRATEGIES INTO COHERENT PROGRAMMING 

17 JOIN(2013) 30, 11.12.2013. 
18 Joint Framework Documents as a substitute for country strategy papers are currently foreseen in Regulation 
(EU) No 233/2014 of the European Parliament and of the Council establishing a financing instrument for 
development cooperation, OJ L77, 15.3.2014, p. 77. 
19 Commission Decision C(2014) 5019 of 11.7.2014 on the establishment of the European Union Trust Fund for 
Central African Republic “Bêkou EU Trust Fund”. 
20 Commission Decision C(2014) 9615 of 10.12.2014 on the establishment of a European Union Regional Trust 
Fund in response to the Syrian crisis, "the Madad Fund". 
21 Commission Decision C(2015) 7293 of 20.10.2015 on the establishment of a European Union Emergency 
Trust Fund for stability and addressing root causes of irregular migration and displaced persons in Africa. 
22 Commission Decision C(2015) 9500 final on the coordination of the actions of the Union and of the Member 
States through a coordination mechanism – the Refugee Facility for Turkey. 
23 These commitments include EU pledges and EU Compacts such as those envisaged for Jordan and Lebanon. 
Compacts are comprehensive aid and support packages which combine policy elements within EU competence 
(assistance,  trade,  mobility,  security,  etc.)  in  exchange  of  Jordan  and  Lebanon  commitments  on  social  and 
economic inclusion of Syrian refugees. 

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The  new  policy  approach  must  be  the  norm,  not  the  exception.  It  should  entail  a  deeper 
exchange  of  information,  coordinated  assessments,  joint  analytical  frameworks,  and 
coordinated programming and financial cycles. This involves setting up common targets 
for  the  short,  medium  and  long  term,  as  well  as  common  indicators.  Common  targets 
agreed between the EU and host countries and formulated under the multiannual development 
planning  cycle  would  enable  humanitarian  assistance  to  cater  for  unexpected  influxes  of 
displaced  people  without 
local 
communities more fragile. 

jeopardising  development  programmes  or  making 

When  forced  displacement  is  identified  as  a  key  challenge  to  development,  existing 
programmes should be adapted or new programmes designed to factor in displacement. Joint 
programming between the EU and Member States is a flexible, country-led exercise that can 
be a useful tool to tackle forced displacement.  

Donors should provide predictable and flexible funding. At EU level, the flexibility of the 
external financing instruments24 should be used to enable this approach. The recent creation 
of  EU  Trust  Funds  gives  the  EU  greater  flexibility,  alongside  the  possibility  to  receive 
additional  funding  from  other  donors,  including  EU  Member  States.  Other  types  of  tools 
allowing more flexibility include the Instrument contributing to Stability and Peace25, Special 
Measures and crisis modifiers in projects. 

The  EU  developed  a  Joint  Humanitarian  Development  Framework  as  main  supporting 
document for any joint work to address malnutrition in the northern part of Nigeria. 

2.1.4.  FOSTERING REGIONAL COOPERATION 

Enhanced  cooperation  between  the  EU’s  different  policies  and  instruments  is  a  determining 
element of the reviewed European Neighbourhood Policy (ENP). Among the key actions, the 
ENP  review  suggests  greater  EU  involvement  in  fostering  regional  cooperation  between 
neighbouring countries that face common challenges, as well as in promoting academic and 
labour  mobility,  including  for  refugees.  Stronger  links  with  the  diaspora,  legislative  bodies 
and  labour  market  actors,  such  as  business,  trade  unions  and  social  partners,  were  also 
highlighted  as  key  in  providing  protection  for  the  forcibly  displaced.  They  also  boost  the 
resilience of host communities.26 

The EU-funded Regional Development and Protection Programme in North Africa is helping 
an Arab diaspora crowdfunding platform (narwi.com) to finance micro-businesses. 

Actions: 

• 

Ensure  that  joint  analyses  and  preventive  action  address  risks  and  consequences  of 
forced  displacement  such  as  through  connections  between  the  EU's  conflict  and 
humanitarian early warning systems.  

24 OJ L77, 15.03.2014. 
25 Regulation (EU) No 230/2014, OJ 77/1. 15.03.2014. 
26 JOIN (2015) 50, 18.11.2015. 

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• 

• 

Apply the lessons learned from the resilience approach more consistently to situations 
of forced displacement. The lessons point to the need for joint analysis of risks and 
vulnerabilities,  joint  strategic  programme  design  and  humanitarian-development 
frameworks for addressing the needs of the most vulnerable.  

Include displacement-specific actions in the EU comprehensive approach action plan 
related to joint or coordinated needs assessment and subsequent action. 

2.2. STRATEGIC ENGAGEMENT WITH PARTNERS 

2.2.1.  PARTNER COUNTRIES 

Under international refugee27 and human rights law, host governments are obliged to provide 
protection  to  refugees  and  respect  their  human  rights.  Governments  have  the  principal 
responsibility to protect their citizens, including those who are internally displaced.  

Undocumented  refugees  and  voluntary  returnees  are  a  huge  targeting  gap.  A  development 
approach to support their return and reintegration is required but without formal refugee status 
they do not have the right to claim support under the national programmes. 

There  are  almost  as  many  undocumented  as  documented  Afghan  refugees  in  Pakistan.  The 
two groups are placed in different situations and face different challenges as they are eligible 
to  dramatically  different  types  and  levels  of  support,  within  the  host  country  and  for 
repatriation.  

National  legal  and  policy  frameworks  and  the  leadership  provided  by  governments  set  the 
parameters  for  how  the  needs  of  refugees,  IDPs  and  host  communities  can  be  addressed  by 
political, development and humanitarian actors. Policy dialogues with host governments from 
the  beginning  of  a  crisis  are  crucial  to  define  long-term  strategies  and  development  plans, 
taking  into  account  country-specific  challenges.  The  EU  should  closely  cooperate  with  its 
strategic  partners  and  the  international  community  in  assisting  host  governments  and  local 
authorities, to formulate policies that both ensure the legal protection of displaced people and 
give  them  opportunities  to  become  self-reliant.  In  addition,  assistance  must  be  provided  to 
stabilise  countries  of  origin  so  that  the  basic  conditions  for  people  to  return  voluntarily  to 
post-conflict areas are established. 

Uganda’s  Refugee  Act  allows  refugees  to  reside  in  settlements  where  they  have  the  right to 
cultivate land, enabling their self-reliance. 

Large-scale displacement causes both a high degree of fiscal stress on national and municipal 
public  budgets,  as  well  as  macro-economic  shocks  which  tend  to  undermine  national 
development strategies and recent development gains. While the primary responsibility for 
promoting  developmental  approaches  to  reverse  these  structural  impacts  of  forced 
displacement  lies  with  the  host  governments,  they  frequently lack  the  financial  resources 
and  the  capacity  to  promote  these  responses.  Failure  to  tackle  these  situations  can  increase 
both  the  fragility  of  host  states  and  the  tensions  between  hosts  and  refugee  or  IDP 

27 The Parties to the Convention Relating to the Status of Refugees (1951) and the Protocol relating to the Status 
of Refugees (1967) are obliged to protect refugees on their territory according to the terms of these instruments. 

9 

 
 
                                                 
communities. International actors have a vital role to play in providing external support 
to mitigate these impacts and promote more sustainable government responses. 

Policy decisions and the legal framework are usually adopted at national level, but it is local 
authorities  that  are  most  directly  affected  by  displacement.  Close  cooperation  with  local 
authorities  as  well  as  longer-term  investment  in  their  response  capacity  is  crucial  to  ensure 
local  ownership  and  the  sustainability  of  the  response.  The  most  innovative  approaches  are 
developed  at  this  level,  such  as  cooperation  between  cities  to  boost  capacity  in  areas  like 
urban planning, local economic development and service delivery. Strategic use of available 
tools can link the local response with the national structures. 

In Iraq, the EU is supporting a sequenced, multi-purpose cash assistance programme to help 
displaced people and vulnerable households in host communities. The objectives are to align 
government-led  and  humanitarian  cash  programming  more  closely,  avoid  creating  parallel 
systems  and  establish  close  cooperation  between  humanitarian  assistance  and  long-term 
support. The cash programme was launched at local/governorate level to build local linkages 
which  can  then  be  raised  to  the  national  level  in  conjunction  with  the  ongoing  support  for, 
and reform of, national social protection nets. 

CSOs can assist with advocacy and with empowering displaced people by informing them 
of their rights and obligations. They can also facilitate mutual interaction between displaced 
people and the host communities. Meanwhile, the diaspora can assist by raising the profile 
of the crises and by contributing financially to the setting up of micro-businesses by both host 
communities and the forcibly displaced. 

The effectiveness of these actions to boost resilience and self-reliance depends heavily on the 
extent of the ‘buy-in’ from the host communities and the displaced people themselves. To this 
end,  the  EU  should  strive  to  design  a  localised  approach,  tailor-made  to  the  specific 
vulnerabilities  and  capabilities  of  each  region.  This  is  possible  only  if  the  forcibly 
displaced and the host populations participate actively in formulating local policies and 
in socioeconomic activity. This would not only help to defuse tensions between the different 
populations  but  will  also  assist  in  urban  planning  and  highlight  the  potential  advantages  of 
their  co-existence.  The  fact that  more  forcibly  displaced  people  now  live  in  urban  areas 
than camps gives them more opportunities to integrate.  

Actions: 

• 

 Promote access to all forms of legal registration for all displaced populations, whilst en-
suring protection of personal data in full respect of international standards. This includes 
registering  births  to  ensure  that  displaced  children  are  included  in  the  civil  registration 
system of the host country and to prevent the emergence of new stateless populations. 

•  Encourage  host  governments  and  communities  through  advocacy,  information  and 
incentives  to  progressively  integrate  forcibly  displaced  people  into  the  social  and 
economic life of the community. 

•  Engage  with  host  governments  to  provide  policy  support  for  legally  anchoring  the 
protection and socioeconomic inclusion of forcibly displaced people in local and national 

10 

 
 
 
 
development  plans.  This  should  be  done  with  full  respect  for  international  refugee  law 
and  international  humanitarian  law.  Special  regard  should  be  paid  to  the  needs  of 
vulnerable people due to gender, age and disability. 

•  Assist diaspora and civil society initiatives to increase the self-reliance of the forcibly 

displaced and their integration into host communities. 

•  Boost engagement with local authorities to increase their capacity in areas such as urban 
planning, local area-based economic development and service delivery. This could be 
done through decentralised cooperation (e.g. city to city cooperation. 

2.2.2.  PRIVATE SECTOR INVOLVEMENT 

The  private  sector  can  become  an  important  player  in  increasing  the  self-reliance  and 
inclusion of forcibly displaced people and boosting the resilience of their host communities. 
The private sector can assist at both the macro-economic and the micro-economic level. 
It can also offer much-needed services and employment opportunities.  

Private sector operations may be flexible about implementation timeframes as well as cost-
effective.  However,  to  maximise  the  private  sector's  impact,  especially  in  complementing 
other  operations  on  the  ground,  a  holistic  approach  which  identifies  potential  projects  and 
synergies is needed from the outset. 

The  private  sector  can  also  play  an  important  role  in  sustainable  and  market-friendly 
approaches  to  developing  municipal  infrastructures  for  services  such  as  energy,  water 
and  waste  management.  It  is  therefore  imperative  that  the  strategic  framework  be  put  in 
place early in a crisis so that businesses feel confident in investing. 

In Jordan, a private-public partnership for upgrading water pumps has resulted in significant 
energy  savings.  The  partnership  is  between  a  private  company  and  the  Jordan  Water 
Company,  assisted  by  the  German  Development  Cooperation  and  the  European  Bank  for 
Reconstruction and Development. 

Restrictive camp settings limit possibilities for boosting self-reliance. Cash and vouchers 
are  examples  of  some  of  the  new  approaches  devised  for  providing  support  which  can 
increase self-reliance and instil a sense of dignity and ownership in the displaced people. In 
conjunction with public sector 'cash for work' schemes for employing refugees short-term, the 
private  sector  could  provide  financial  services  via  local  banking  systems  for  in-cash 
distribution  mechanisms.  These  could  also  be  accompanied  by  schemes  to  support  micro-
finance institutions and savings and loans mechanisms, as well as micro-, small- and medium-
sized  enterprises  and  business  start-ups  through  capacity  building  and  financing.  There  are 
already a number of examples where micro-, small- and medium-sized enterprises have been 
supported in order to create employment and economic development through various funding 
products in blending facilities28. Blending facilities can thus be a tool to leverage additional 
public and private resources. 

28 Blending refers to complementary use of grants and loans in the EU external assistance. 

11 

 
 
 
                                                 
Financial Intermediary Funds (FIFs) are new tools to reduce the cost of lending for middle 
income countries which are major hosts of forcibly displaced populations, such as Turkey, 
Jordan, Lebanon and Ukraine. The concessional loan facility should work like the Deauville 
Transition Fund, i.e. it will be financed by donors’ grants, while the FIFs would manage the 
programme's implementation. 

In  addition,  collaboration  with  the  private  sector  and  social  entrepreneurs  can  help  many 
refugees  and  IDPs  to  obtain  mobile  phones  and  access  to  the  internet.  This  could  make  it 
much easier to gather and share information, deliver services such as mobile cash and mobile 
banking, and integrate refugees and IDPs into local labour markets. 

Actions: 

• 

• 

• 

• 

Include the private sector in formulating strategies at the start of a crisis, in order to 
identify capacities and allow sufficient time for planning. 

Facilitate  cooperation  between  the  private  sector  and  host  governments  and  local 
authorities in order to boost complementary actions and avoid duplication. This can 
be done, for example, by helping governments streamline their procedures so that the 
private sector can set up micro-enterprises. 

Support self-employed displaced persons in re-starting their businesses, to contribute 
to  alleviating  fiscal  stress,  fostering  job  creation  (including  for  members  of  host 
communities) and facilitating integration. 

Encourage host governments and the private sector to increase internet access for the 
displaced people. 

2.3. SECTORAL FOCUS 

2.3.1.  EDUCATION 

In  forced  displacement  crises,  quality  education  in  safe  environments  is  instrumental  in 
child protection strategies and one of the main priorities for both forcibly displaced people 
and  host  communities.  Lack  of  education  opportunities  undermines  prospects  for  achieving 
social  and  economic  well-being  and  risks  causing  an  inter-generational  decline  in  human 
capital,  as  well  as  loss  of  hope,  marginalisation,  (sexual)  exploitation,  crime,  violence  and 
radicalisation. Education in emergencies constitutes an essential component of humanitarian 
assistance in forced displacement crises. In 2016, the Commission quadrupled the share of its 
annual humanitarian budget dedicated to education in emergencies to 4 %. This increase also 
reflects the emphasis that the 2030 Agenda for Sustainable Development places on education 
in eradicating poverty and empowering children.29 

Children below 18 years constituted 51% of the refugee population in 2014, up from 41% in 
2009  and  the  highest  figure  in  more  than a  decade.30 With  an  estimated  65  million  children 
aged 3-15 directly affected by humanitarian emergencies, including displacement, the threat 

29 SDG 4 Quality Education: Ensure inclusive and equitable quality education and promote lifelong learning 
opportunities for all. 
30 "World at War. UNHCR: Global Trends, Forced Displacement in 2014", June 2015. 

12 

 
 
 
                                                 
of  ‘lost  generations’  is  real.31 To  help  integrate  children  and  young  people  into  their  host 
communities,  challenges  such  as  trauma,  nutrition,  gender-based  violence  and language  and 
cultural barriers need to be tackled effectively. This requires a more comprehensive approach 
to complement humanitarian assistance.  

 In Jordan, the EU is helping the government provide free education to Syrian refugee 
children through a budget support programme. 

As  forced  displacement  becomes  protracted,  host  communities  and  their  public  education 
systems  may  struggle  to  accommodate  the  numbers  and  diversity  of  the  displaced  children 
and young people. The need for stronger integration tools thus becomes more pressing. The 
critical challenge is to ensure that governments and other authorities have the resources and 
capacity to provide both the displaced and the local populations with access to full, equitable 
and quality education. This applies at all levels — early childhood, primary, secondary, 
vocational and higher education. Authorities should make the best use of teachers and other 
education personnel among the displaced to achieve this and to raise intercultural awareness 
within the hosting education system. An analysis of the different levels of education of those 
present  and  the  various  needs  is  of  particular  importance  for  an  adequate  response. 
Development  cooperation  supports  host  communities  through  budget  assistance  and 
their  resilience  and  preparedness. 
infrastructure-building  programmes,  boosting 
Education  and  language  training,  provided  in  a  gender-sensitive,  safe  and  nonviolent 
environment,  constitutes  one  of  the  most  powerful  tools  to  help  forcibly  displaced  people 
integrate into their host communities. This is especially true for women and girls.  

Closer  cooperation  between  humanitarian  and  development  actors  can  ensure  continuity  of 
education by closing the gap between education in emergencies and access to full, equitable 
and  quality  education  at  all  levels.  Meanwhile,  joint  development-humanitarian  strategy 
planning could enable the use of technological advancements, such as smartphones, tablets 
and  the  internet,  for  e-learning  and  more  interactive  teaching.  This  can  help  to  overcome 
cultural and linguistic barriers. In higher education, offering scholarships to enable access to 
universities  as  well  as  cooperation  between  universities  could  enable  students  to  remain 
accredited during their displacement.  

  Somali  refugees  can  benefit 

from 

jointly  certified  education  programmes,  with 

accreditation in Kenyan and Canadian universities. 

 

 

In Jordan the EU is funding a higher education programme which gives both refugees and 
local  students  access  to  'massive  open  online  courses'.  The  programme  is  being 
implemented by the British Council. 

In Kenya, the Democratic Republic of Congo and South Sudan, the UNHCR and a private 
foundation have set up 18 'instant network schools' powered by solar energy. Students use 
internet-enabled tablets to follow directions, pursue studies and carry out research, while 
their teachers use interactive whiteboards as a vital teaching aid during lessons. 

31 ODI — ‘Education in Emergencies and Protracted Crises: Toward a Strengthened Response.’ Background 
Paper for Oslo Summit on education For Development, 6-7 July 2015. 

13 

 
 
 
 
 
                                                 
Similarly, innovations in non-formal  education need to be encouraged. These should build 
on  good  practices,  such  as  providing  alternative  basic  education  to  working  children,  and 
language and other training for teachers and students using mobile technology. 

Actions: 
  Coordinate more closely with host countries to analyse educational levels and needs and 
ensure a greater continuity between education in emergencies and non-formal education 
and/or the public education services. 

  Encourage host countries to use the potential of displaced teaching/education personnel 

at all education levels. 

  Support financially and operationally the good functioning of public education services 
while promoting equal access to education for displaced children, particularly girls. 

  Utilise technological advancements, such as the internet, smartphones and interactive 

learning, to make integration and learning easier. 

  Facilitate access to universities, also by offering scholarships, and put in place higher 
education distance learning and certified higher education programmes which provide 
flexible accreditation. 

2.3.2.  ACCESS TO LABOUR MARKETS 

One of the most effective ways to reduce the aid dependence of forcibly displaced people and 
increase their self-reliance is to give them access to labour markets. As well as allowing them 
financial  independence,  this  helps  the  displaced  integrate  into  and  participate  in  their 
host  communities  and  learn  the  host-country  language.  This  is  especially  the  case  if 
employment  is  targeted  at  benefiting  both  displaced  and  host  populations  and  alleviating 
pressure  on  the  host  community.  By  contrast,  not  allowing  or  partially  restricting  forcibly 
displaced people from working is likely to result in an increase in the informal economy with 
negative consequences, such as the reappearance of child labour, forced labour, exploitative 
forms of work and the risk of social dumping and resulting tensions between host community 
and  displaced  persons.  Forcibly  displaced  people  are  potential  workers,  professionals, 
business  people  and  development  agents.  Their participation in local economic activity in 
their host countries can greatly benefit the whole region. However, to tap into this potential, 
the  necessary  legal  frameworks  need  to  be  in  place.  This  should  be  addressed  in  political 
dialogues.  Development  cooperation  can  also  help,  by  providing  not  only  employment 
possibilities but also capacity-building assistance to the host government. 

In  Lebanon,  the  EU  is  funding  the  Labour  Force  and  Living  Standards  Survey,  which  will 
include  Syrian  refugees.  The  survey  will  inform  policymaking  and  the  labour  market 
information systems that are key for human development planning. 

As  a  follow  up  to  the  Union  for  the  Mediterranean  Declaration  on  Blue  Economy,  the 
Commission  promotes  initiatives  on  the  inclusion  of  forced  displaced  populations  in  skills 
development and job creation programmes in marine and maritime sectors.   

14 

 
 
 
 
The early involvement of development actors in a forced displacement crisis can dramatically 
boost  host  communities'  preparedness  for  an  influx  of  displaced  people.  Development 
cooperation  can  help  host  countries  to  involve  forcibly  displaced  people  in  labour-intensive 
public works. Not only would this help to integrate forcibly displaced people into the host 
community more smoothly; the financial burden on the host country from hosting refugees 
could also be alleviated through tax revenues. In addition, the public works could benefit the 
local  community  and  provide  a  ready-made  response  for  a  future  influx.  Furthermore, 
establishing  databases  of  the  skills  and  former  professions  of  forcibly  displaced  people  can 
prove  useful  for  ad  hoc  projects  and  can  boost  the  labour  mobility  of  the  local  host 
community. 

The Economic Policy Research Foundation of Turkey has set up a system for identifying the 
skills of refugees that match companies’ needs. 

Actions: 

  Provide policy support and expertise to help host governments put in place legislation 
giving displaced people access to the formal labour market and decent work and 
protecting them from labour exploitation.   

  Ensure the early involvement of development actors to identify possible labour intensive 
public works (in conjunction with both the host government and the private sector) and to 
employ displaced people through cash-for-work programmes. 

  Promote the collection of data and the establishment of databases on the skills, 

qualifications and past occupations of forcibly displaced people so that they can work, in 
full respect of international standards for protection of personal data.   

  Step up social dialogue with social partners, business organisations and authorities within 
the host countries. The goal should be to better assess labour market needs and make 
progress on recognising skills and qualifications to promote more legal mobility, 
including those of the forcibly displaced. 

  Actively engage in multilateral fora on access to labour markets and decent work 

standards for refugees32 

2.3.3.  ACCESS TO SERVICES 

The potential longer-term dimensions of forcibly  displaced people's needs, such as housing, 
healthcare,  nutrition,  protection,  drinking  water  and  sanitation,  education  cannot  be  met 

32 Such as the ILO discussions during the 105th and 106th sessions of the International Labour Conference on a 
standard setting item on Employment and decent work for peace, security and disaster resilience: Revision of the 
Employment (Transition from War to Peace) Recommendation, 1944 (No. 71); the UN General Assembly High 
level meeting on refugees and migration in September 2016 and the ILO tripartite preparatory expert meeting on 
labour market access of refugees. 

15 

 
 
 
 
                                                 
through  humanitarian  assistance  alone.  Moreover,  excluding  forcibly  displaced  people  from 
the  public  services  of  host  communities  may  result  in  aid  dependence  that  hinders  the 
sustainable development of both the host communities and the displaced people. Where 
feasible, the forcibly displaced should be integrated into existing service delivery structures, 
in ways that ensure they have equal and fair access to the services. However, granting such 
access  can  pose  a  challenge  as  the  influx  of  refugees  creates  a  notable  fiscal  stress  on  host 
countries, especially as these tend to be vulnerable and low-income economies. Services such 
as  healthcare,  accommodation,  employment  and  training  services  and  childcare  face 
considerable pressures. This is due not only to the situation in the host country itself, which 
may be precarious; it is also due to the potential shortage of skilled healthcare workers able to 
tend to the needs of refugees, such as mental health, post-traumatic stress and gender-based 
violence.  In  acute  emergencies  when  existing  systems  are  not  able  to  cope  there  may  be  a 
temporary  need  to  bring  in  parallel  systems  to  provide  additional  services.  These  should  be 
integrated into existing national and local systems as soon as conditions allow. 

At the same time, complementary measures to support longer-term sustainable development 
strategies and protect the macro-economic conditions of the countries impacted are essential. 
International  players  have  a  number  of  measures  and  instruments  at  their  disposal  to  help 
achieve macro-economic  stability: support for analytical work on macro-economic impacts 
to  inform  holistic  strategies;  support  measures  to  stimulate  economic  recovery  and 
incorporate  refugees  in  the  workforce  or  concessionary  loans  to  kick-start  employment-
generating commercial development. 

In Iran, the government recently announced a joint initiative with UNHCR and the Iran 
Health Insurance Organisation to bring nearly a million Afghan and Iraqi refugees within the 
national healthcare safety net – the Universal Public Health Insurance scheme.  

Social  protection  is  also  imperative  for  empowering  the  forcibly  displaced  and  giving  them 
long-term  regular  and  predictable  support  to  address  chronic  vulnerability. Due to the 
financial  pressures  faced  by  many  host  countries,  a  multiannual  programming  strategy  is 
needed to complement the efforts of public authorities and assistance from other actors. To 
help  create  a  social  safety  net,  it  is  imperative  to  put  in  place  information-sharing  systems 
and  tracking  of  benefits,  as  well  as  contingency  and  finance  planning  between  EU 
humanitarian and development actors and public authorities.  

In Jordan, the UNRWA33 project on ‘strengthening the resilience of Palestinian refugees from 
Syria’ is introducing a set of protection interventions to prevent these refugees from falling 
into extreme vulnerability. This is being done through cash grants, access to basic education 
and targeted humanitarian interventions. 

Actions: 

• 

Help host governments develop integrated approaches to providing services and 
developing social protection programmes for both the displaced and hosts. 

33 United Nations Relief and Works Agency for Palestine Refugees in the Near East. 

16 

 
 
 
                                                 
• 

• 

• 

Provide budget support to public services as well as other service providers, including 
civil society organisations under pressure in order to complement host government 
actions and address shortcomings, whenever possible. 

Promote the incorporation of emergency programmes into  national social protection 
systems. 

Promote  and  support  the  extension  of  security  and  justice  services  to  refugees  and 
forcibly displaced people. 

3. 

CONCLUSION 

Despite the EU efforts, as the largest global development donor and humanitarian actor, the 
magnitude and complexity of the challenge of forced displacement call for further ambitious 
action. Approaches that address only immediate humanitarian needs are incompatible with the 
large-scale  and  protracted  nature  of  forced  displacement.  Development  assistance  has  to  be 
included  at  the  outset  of  a  crisis,  not  only  to  tackle  the  root  causes  but  to  also  address  the 
development needs of the displaced and their hosts. 

This Communication proposes a development-oriented approach to refugees, IDPs and their 
hosts with a focus on their specific vulnerabilities and capacities. It introduces a multi-actor 
response, including the private sector, based on improved evidence of what works and 
does not work in different contexts. Building on strong partnerships with hosting countries, 
it calls for greater synergies between humanitarian and development actors regarding shared 
analyses,  programming  and  the  predictability  and  flexibility  of  funding,  including  at  local 
level,  where  the  most  innovative  responses  emerge.  The  aim  is  to  foster  the  resilience  and 
self-reliance  of  forcibly  displaced  people  through  quality  education,  access  to  economic 
opportunities and social protection.   

An EU policy to address forced displacement will help to prevent fragmentation or overlaps 
in the European response and to make greater use of potential economies of scale. This will 
make the response by the EU and its Member States more coherent and thus more effective. 

The UN-led World Humanitarian Summit in May 2016 is a significant opportunity for the EU 
and  its  Member  States  to  engage  with  other  actors  to  ensure  early  political  attention  and 
build commitment for a more coherent and holistic global approach to tackling forced 
displacement.  This  commitment  should  be  based  on  a  common  strategic  agenda  and 
greater cooperation between international donors, host governments, local communities, 
civil society and the displaced themselves.  

17