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Connecting Human Rights and Conflict Transformation

Guidance for Development Practitioners

published by in cooperation with in cooperation with

This publication has been made possible by the German Federal Ministry for Economic Cooperation and Development (BMZ), who commissioned the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH to produce it. Since 1 January 2011, GIZ has brought together under one roof the long-standing expertise of the Deutscher Entwicklungsdienst (DED) GmbH (German development service), the Deutsche Gesellschaft für Technische Zusammenarbeit (GTZ) GmbH (German technical cooperation) and InWEnt – Capacity Building International, Germany. For further information, go to www.giz.de.

As the text of this publication was prepared in 2010, the documented events and projects still refer to DED, GTZ and InWEnt.

The inner section of this publication has been designed with a view to being ‚barrier-free‘ which means that the use of different fonts, small font sizes, italics, bold and underlined has been kept to a minimum.

We owe this publication to the work of its author, Michelle Parlevliet, and to the editorial team which included Anja Hoensbroech, Mareike Junge (GIZ), Andrea Kämpf (GIHR), Juliane Osterhaus (GIZ), Dr. Stephanie Schell-Faucon (GIZ) and Romy Stanzel (CPS/GIZ).

Thanks to Dr. Undine Whande-Kayser, Dr. Anna Würth and Natascha Zupan for their substantial comments and support in an intensive and multi-disciplinary process of dialogue. We also express our gratitude to Lisa Ibscher, Verena Frey, Dr. Ulrich Goedeking, Caroline Sperling, Dagmar Blickwede, Jagat Basnet, and Anne Dirnstorfer for providing case material.

Table of contents

Abbreviations 7

Foreword 8

1. Introduction 9

2. Important Terms 12

3.TheInterconnectednessofHumanRightsandConflict Transformation 14

3.1 HumanRights,Conflict,PeaceandDevelopment 14

3.2 SharedVision,DifferentTheoriesofChange, ComplementaryApproaches 16

3.3 Working towards Conversation and Connection between the FieldsofHumanRightsandConflictTransformation 21

4. Practical Application 26

4.1 IncorporatingInsightsandInstrumentsfromthe‘Other’Field 26

4.2 Localising Human Rights 29

4.3 Communicating and Negotiating about Human Rights 32 4.3.1RaisingHumanRightsIssuesinaDispute/ConflictIntervention 32 4.3.2 Encountering Resistance: Talking about Rights in

Terms of Interests and Needs 33 4.3.3NegotiatingImplementationofRights 34

4.4 BalancingRoles 36

4.5 LinkingInterventionsacrossSymptomsandCausesofConflict and between Actors 38

4.5.1LinkingInterventionsTargetingSymptoms andCausesofConflict 38

4.5.2LinkingInterventionsAcrossActorsandLevelsofSociety 40

4.6 DealingwiththePast:BalancingPeaceandJustice 42

5. Conclusion and Outlook: Summary, Open Questions and Way Forward 45

Annex 49

Table of contents

Annex

Box 1: Human Rights Violations as Causes & Consequences of ViolentConflictProvidesexamplesofthedifferentwaysinwhichHRVcanbecauses (proximateandstructural)andconsequencesofviolentconflict. 50

Box 2: The Iceberg: Human Rights Violations (as Causes and Symptoms of(Violent)ConflictProvidesschematicillustrationofHRVascausesandconsequences and interaction between these two levels. 52

Box 3: The Iceberg Continued: Problems, Activities and Desired Outcomes at the Level of Human Rights Violations as Causes and as SymptomsExplainshowproblemstobeaddressed,objectivesandactivitiesdiffer, ifHRVarecausesorconsequences. 53

Box 4: Understanding Basic Human Needs, and Needs & RightsExplainsnotionofbasichumanneedsasusedinthepublicationand link with human rights. 55

Box5: HumanRightsandConflictTransformation‘Lenses’Summarisesthedifferentperspectivesthathumanrightsandconflict transformationbringtodevelopmentcooperationandstrategies. 57

Box6a: ContributionsofHumanRightstoConflictTransformationSummariseswaysinwhichhumanrightscancontributetoconflict transformation. 60

Box6b: ContributionsofConflictTransformationtoHumanRightsSummariseswaysinwhichconflicttransformationcancontributeto humanrights. 62

Box 7: Direct, Structural and Cultural Violence Providesanexplanationofthesethreeformsofviolenceandtheir relevancefromahumanrightsperspective,aswellasanexampleto illustratethem. 64

Box 8: Areas for Development Interventions with Both Human Rights and ConflictTransformationRelevanceListssevenareasregularlytargetedthroughdevelopmentcooperation thatarerelevantfrombothahumanrightsandaconflicttransformationperspectiveandthatcanbenefitfromintegratinginsightsand approachesfrombothfields. 66

Box9a: HumanRights-BasedQuestionstoInformandEnhanceConflictTransformation workListsquestionsfromahumanrightsperspectivetoconsiderwhen workingonconflicttransformation. 67

Box9b: ConflictTransformation-BasedQuestionstoInformandEnhance Human Rights WorkListsquestionsfromaconflicttransformationperspectivetoconsider whenworkingonhumanrights. 70

Box10: AnalysisforHumanRights-and/orConflictTransformation- Oriented Development PractitionersProvidesgeneralinformationontheuseofanalyticaltoolsandincludessuggestionsfor‘thinking’humanrightsintothePeace&ConflictAssessment. 73

Box 11: Human Dignity and Human RightsSetsoutinstructionsforanexercisefacilitatingreflectiononand understandingofhumandignity&itslinktohumanrights 75

Box12: HumanRights,HumanNeeds,and(Violent)ConflictSetsoutinstructionsforanexercisefacilitatingreflectiononthelink betweenhumanrights,humanneedsandconflict. 78

Box13: DistinctionbetweenBasicHumanNeedsandSatisfiersExplainsandliststhedifferencebetweenbasichumanneedsand satisfiers. 81

Box 14a: Dimensions of Human RightsExplainsthefourdimensionsofhumanrights. 83

Box 14b: Example of Using the Dimensions of Human RightsProvidesanexampleofusingthesetoenhanceconflictintervention design. 85

Box 15: Positions and InterestsExplainsthedistinctionbetweenpositionsandinterests. 87

Box 16: Framing and Reframing: Framing Human Rights Issues in Terms of InterestsExplainswhatframingisandprovidesguidelinesforframinghuman rights in terms of interests. 89

Box17: Position&Interests,Needs&SatisfiersinRelationtoRightsIllustrateslinksbetweenpositions,rights,satisfiers,interestsand needs. 91

Box18: ExamplesofHumanRightsandConflictTransformationRolesSummarisessomecommonhumanrightsrolesandregularconflict transformation roles. 93

Box 19: Role Integrity, Role Clarity, and Role Confusion Associative and Dissociative ApproachesExplainsthenotionsofroleintegrity,clarityandconfusion,and associative/dissociativeapproachesinconflict. 95

Box 20: Balancing Roles Providesinstructionsforanexerciseonbalancingroles. 97

Box 21: Types of AdvocacyProvidesatypologyofdifferentformsofadvocacy. 100

Box 22: Linking Levels of Intervention: The Nested ParadigmProvidesaschematicillustrationofdifferentlevelsofresponse,linked totheicebergimage. 101

Box23: ConflictPyramid:LevelsofLeadershipandVertical&Horizontal CapacityProvidesvisualimageofthreelevelsofleadershipinsocietyand activitiesthatcanbeundertakenatthedifferentlevels. 103

Box 24: Dealing with the PastProvidesinstructionsforanexerciseondealingwiththepast, exploringthenotionsoftruth,peace,justiceandmercy. 105

Box25: InformationonRelevantRightsStandardsRelatedtoLandConflictsElaboratesinmoredetailonthespecifichumanrightsthatarerelevant forconflictsaroundlandissues 110

Box 26: The Human Rights-Based Approach (HRBA) in German Development CooperationExplainsinmoredetailthehumanrights-basedapproachasusedin thepublication 113

Box27: ABriefSummaryofHumanRights(UnofficialSummarizedVersion)Lists the human rights established in the two main international human rights treaties, the International Covenant on Economic, Social and CulturalRights(ICESCR)andtheInternationalCovenantonCiviland PoliticalRights(ICCPR) 115

Box 28: References and Suggestions for Further Reading Literature list and suggestions for further reading. 117

GIZ&ZFD&DIMR–ConnectingHumanRightsandConflictTransformation GuidanceforDevelopmentPractitioners

7

Abbreviations

BMZ BundesministeriumfürwirtschaftlicheZusammenarbeitundEntwicklung(FederalMinistryforEconomicCooperationandDevelopment)

CPS/ZFD CivilPeaceService/ZivilerFriedensdienstCSO CivilsocietyorganizationCT ConflicttransformationDC DevelopmentcooperationDED DeutscherEntwicklungsdienst(GermanDevelopmentService)DIMR DeutschesInstitutfürMenschenrechte(GermanInstituteforHuman

Rights)FLICT FacilitatingLocalInitiativesforConflictTransformation(SriLanka)GIHR German Institute for Human RightsGIZ DeutscheGesellschaftfürInternationaleZusammenarbeit(German

AgencyforInternationalCooperation)GTZ DeutscheGesellschaftfürtechnischeZusammenarbeit(GermanAgency

forTechnicalCooperation)HR Human rightsHRBA Humanrights-basedapproachHRV Human rights violationsICESCR International Covenant on Economic, Social and Cultural RightsInWEnt InternationaleWeiterbildungundEntwicklung(CapacityBuilding

International)KfW KreditanstaltfürWiederaufbauLTTE LiberationTigersofTamilEelan(SriLanka)NGO Non-governmentalorganizationNHRI National human rights institutionOHCHR OfficeoftheUnitedNationsHighCommisssionerforHumanRightsPBN PeacebuildingNeedsPCA PeaceandConflictAssessmentPCON ProgramadeProcesodePazyConciliaciónNacional(PeaceProcess

SupportProgramme)(Guatemala)SfGG SupportforGoodGovernanceproject(Indonesia)TGPSH Tanzanian-GermanProgrammetoSupportHealth(Tanzania)


8

Foreword

HumanRightsandConflictTransformationareinstrumentalforsustainablepeaceanddevelopment.Botharekeyelementsfortheattainmentofsocialjusticeandtheconstructionofsocietiesinwhicheverypersonhasthefreedomtoactuponhisorherownchoices.However,“peaceversusjustice”hasoftenbeenperceivedorconstructedasadividebystakeholdersfromthetworespectiveexpertcommunities.Thisisalsoaresultofthefactthatthesetwofieldshavebeenevolvingratherseparatelyduringthepastdecades,bothinacademiaandatpracticelevel.

ButHumanrightsandconflicttransformationhavemuchtoofferoneanother.Acloserinteractionbetweenhumanrightsandconflictpractitionersonthegroundandtheconnectionofrespectivetoolsandapproachesdeepensouranalysisandcreatesadditionalsynergies:Itemphasizesthestructuraldimensionsforsustainablepeaceanddevelopmentbyputtingastrongerfocusonsystemsofgovernanceandpowerrelationsindevelopmentcooperation.

Withthispublicationwewishtoofferaguideandtoolboxtofosterthesesynergiesinourpracticalwork.Thisintentionisstronglybackedbythenewconcept“HumanrightsinGermandevelopmentpolicy”(BMZ2011)whichdefineshumanrightsasaguidingprincipleandcross-cuttingissueinGermanDevelopmentCooperation.

Thiscomprehensivepublicationevolvedoveraone-yearprocessofextensivebrainstorming,fruitfuldiscussionsandinterdisciplinarylearning.ThesteeringandeditorialteamwascomposedofmembersfromtheGIZcross-sectoralproject“Realizinghumanrightsindevelopmentcooperation”,theGIZsectorprogramme“PeaceandSecurity”-bothfinancedbytheBMZ-aswellascolleaguesfromCivilPeaceService/GIZandtheGermanInstituteforHumanRights.Wewishtothankthesecolleagueswhoputalotofenthusiasmintothisprocess.SincethetextofthispublicationwaspreparedbeforetheformationoftheDeutscheGesellschaftfürInternationaleZusammenarbeit(GIZ)inJanuary2011,thedocumentstillreferstothenamesoftheformerinstitutionsGTZandDED.

Finally,weoweanenormousdebttoandaregratefulfortheexcellentworkoftheauthor,MichelleParlevliet,aninternationallyrenownedexpertinthefieldofconflicttransformationwithabundantexperienceincombininghumanrightsandconflicttransformationworkonthepracticallevel.

Weverymuchhopethatthishandbookprovestobeausefulcompanionforpractitionersintheirquesttobetterintertwineconflicttransformationandhumanrightsapproachesintheirwork.

Dr.RomanPoeschke

GIZ,HeadofDivision Security,Reconstruction, Peace

Dr.MatthiasRies

GIZ, Head of Civil PeaceServiceProgramme

Dr.ElkeSiehl

GIZ,HeadofDivisionGovernance and Democracy

MichaelWindfuhr

German Institute for Human Rights, DeputyDirector


9

1. Introduction

Humanrightsandconflicttransformationcanbecomplementaryandmutuallyreinforcing.Thispublicationarguesthatcombininginsights,approachesandinstrumentsfromthesetwofieldsisnotonlynecessary,butcanalsomakedevelopmentcooperationmoreeffectiveandefficient.

Humanrightsandconflicttransformationhavelargelydevelopedseparatelyinthepastdecades,asbodiesoftheoryandsetsofpracticeintheirownright,aswellasinrelationtodevelopmentcooperation.Sincetheearlytomid-2000s,muchattentionhasbeendevotedtohumanrights-basedapproachestodevelopmentontheonehand,andtointegratingconflictsensitivityandpeacebuildingintodevelopmentinterventionsontheotherhand.Yettheseapproachesseemtohaveevolvedonmoreorlessparalleltrackswithlittleconsiderationofhowtheyrelateandwhatthismeansfordevelopmentpractice.Itishoweverwidelyrecognisedthesedaysthathumanrights,conflict,peaceanddevelopmentarecloselylinked.Muchofthefundingfordirecthumanrightsworkandconflicttransformationactivitiescomesfromdevelopmentcooperationbudgets.Also,developmentpractitionerswhoworktoenhancehumanrightsprotectionandpromotion,andthosewhofocusonconflicttransformation,oftenworkinthesamecontext.Theyhavemanyconcernsincommonandsharecertainobjectives:generally,theyallworktowardssustainablepeacewithjusticeandseektochallengeunequalpowerrelationsbysupportingnon-violentprocessesofsocialchange.

Thispublicationhighlightsthathumanrightsviolationscanbebothsymptomsandcausesofviolentconflict.Denialofhumanrights,orfailuretoprotecthumanrights,meansthatbasichumanneeds–relatedtoaccess,acceptanceandsecurity–arefrustrated.Thisgeneratestensioninsociety,whichcangenerateenergyandspurthedesiredsocialchange,butitalsoincreasesthepotentialforviolence,especiallyifsuchtensionisdisregarded,useddestructively,orrepressed.Todealwiththepotentialforviolenceinsocietiesandaddresstheunderlyingconditionsthatcausesocialtension,thehumanrightsandconflicttransformationfieldsmaydefinetheirprioritiesdifferently.Theymaysuggestdifferentstrategiesforaction,focusondifferenttargetgroups,andmayalsoworkwithdifferenttheoriesofchange.Attimes,thishasledtoaperceptionthathumanrightsandconflicttransformationmaybeatoddswithoneanother,leadingtofrictionbetweenpractitionersinthetwofieldsandthesuggestionthatoneperspectiveshouldbeprioritisedabovetheother.

Incontrast,thispublicationarguesthathumanrightsandconflicttransformationapproachesarecomplementaryratherthanmutuallyexclusive,andillustratesthisbyusingexamplesfromtheexperiencesofdevelopmentpractitionersincountriesaroundtheworld.Itclarifieshowknowledgeofhumanrightsstrengthensconflictanalysis.Itdemonstrateshowintegrationofhumanrightsstandards,valuesandprinciplescanbenefitconflicttransformationinterventionsbyhighlightinglegalentitlementsofrights-holdersandobligationsofduty-bearers,aswellasquestionsofcapacityandissuesrelatedtoaccessibility,transparency,accountability,non-discrimination,andparticipation.Atthesametime,itexplainshowhumanrights-focuseddevelopment

10 GIZ&ZFD&DIMR–ConnectingHumanRightsandConflictTransformation GuidanceforDevelopmentPractitioners

practitionerscanbenefitfromconflicttransformationlessonsandtools,suchasconflictanalysis,facilitationandnegotiationtechniques,conflictsensitivity,andthedesignandimplementationofdialogueprocesses.Italsoshowshowsuchpractitionerscanbenefitfromtheemphasisoftheconflicttransformationfieldonthedynamicnatureofconflict,patternsofdecision-makingandcommunication,andthevalueofrelationships.Thepublicationthushighlightsthatitisbothnecessaryandusefultoconsiderinsights,approachesandinstrumentsfrombothperspectives.Thiswillfacilitateaholisticapproachtodevelopmentcooperationthatbuildsonthespecificcontributionsofeachfieldandenhancesbothhumanrightsrealisationandconflicttransformation.

Knowingandusingeachfield’scontributionstrategically,sometimesincombination,sometimesasdistinctlyseparateapproaches,canassistdevelopmentactorstoengageinconstructiveandprincipledinterventionsindifficultcircumstancesorrapidlychangingcontexts.Recentdevelopmentsinbothfieldsprovidemultipleentry-pointsinthisregard.Thehumanrights-basedapproachgoesbeyondthetraditionalfocusonhumanrightsmonitoringandfacilitatingredress,andconflicttransformationplacesmuchemphasisonaddressingnotonlythebehaviouralandattitudinalaspectsofviolentconflictbutalsoitsdeeperstructuralorigins.Severaloftheideasandtoolsputforthinthispublicationcorrespondto,andbuildon,valuesandpracticesthatarealreadypartofgooddevelopmentpractice,suchasparticipatoryapproaches,ownership,empowerment,andtheimportanceofconsideringthelocalcontext.

Thispublicationismeanttoservedeskofficersandfieldstafffromdevelopmentagenciesthatpursueexplicitgoalsintheareasofhumanrightsand/orconflicttransformation,aswellastheirpartnersindevelopingcountries.Itassumesatleastsomeknowledgeamongstreadersofoneortheotherfield,andseekstoserveasabasisfordialoguebetweenpractitionersoperatingfromdifferentperspectives.Therefore,itdoesnotsystematicallysetoutcoreideasfromeachfield.Instead,itoutlinesthemanypointsofconnection,sharedvalues,andcommonvisionofhumanrightsandconflicttransformation.Itfocusesonthequestionofwhattheycancontributetooneanotherandtodevelopmentpractice-ratherthanonwhatmaydividethem.Itdoesnotpretendtohavefoundadefinitivesolution,acure-all.Nordoesitsuggestthatpractitionerscansimplyaddupbothapproachesorwillneverdisagreewithoneanother.Rather,itoutlineslessonslearntandpromisingmethodologiesfordevelopmentpractitionersinthetwofields,withaviewtoprovidingpracticalguidanceonconnectinghumanrightsandconflicttransformationandaddressingchallengesthatmayarisebydoingsoduringplanningandimplementation.

Thetextstemsfromacollaborativeprocessofexplorationanddialoguelastingapproximately1.5years.ThedialogueincludedtheauthorandtechnicalstafffromGTZ(programmes“RealisingHumanRightsinDevelopment”and“PeaceandSecurity”commissionedbyBMZ),DED/CivilPeaceService,aswellastheGermanInstituteforHumanRights.Practitionerreportsfromrecentorongoingdevelopmentprojectsintendifferentcountriesillustratetheideasandtoolspresentedhere.

Thenextsection,part2,clarifieskeyconcepts.Part3discussesthelinkbetweenhumanrightsviolations,conflictandviolenceandexplainshowhumanrightsandconflicttransformationarecloselyinterconnected.Part4describespracticaltoolstolinkhumanrightsandconflicttransformationindevelopmentcooperation,whichare


explainedinmoredetailintheAnnex.Blue-shadedboxesgenerallyprovidepracticalcountryexamples;boxesintroducedbyagreylineindicaterelevantinformationtobefoundintheAnnex;andbluesidelinesmarkkeymessages.Readerscangothroughthepublicationfrombeginningtoend,ortheycandipintosectionsastheyseefit.

Therelevanceofaconflicttransformationorientationtoahumanrights-baseddevelopment programme

InKenya,theBMZ-financedGerman-Kenyanwatersectorprogrammestartedin2003.Itsoughttoincreasethesustainableaccessoftheurbanpoortowaterandsanitationandtoimprovethemanagementofwaterresources.Theadoptionofahumanrights-basedapproachintroducedimprovementssuchasthedesignofprogressivewatertariffs,establishmentofaWaterTrustFund,provisionoflow-costsolutionsthroughestablishmentofwaterkiosksmanagedbytheun-andunder-served,adoptionofcomplaintsmechanismsandotherHR-relevantmeasures.Therighttowaterwasexplicitlyusednotonlywithintheprogramme,butalsointhedialoguewiththegovernmentandotherdonorstoenhancetheirunderstandingofhowthisrightcouldberealisedinpracticalways.Thusfar,thereformprocesshasenhancedpro-poorservicedelivery,accountability,aideffectiveness,andstakeholderparticipation.Additionalconsiderationofconflicttransformationmayfurtherincreaseitsachievements:Conflictanalysisandconflictsensitivityassessmentswouldhighlighttheneedtoexplicitlyaddresshistoricalinequalitiesintheaccessofdifferentethnicgroupstopowerandresources.Itwouldalsosuggestmeasuresthatcanbeadoptedtomaximisepositive,peace-enhancingimpactsandminimisepossiblenegativeimpactonlocalconflictdynamics.Thesecouldinclude,forexample,theformationofcross-ethnicteamstomanagewaterkiosks;developmentofcrisisinterventionteamswhichmonitorviolenceandcanhelptode-escalatetensionarisingatlocallevel.

Therelevanceofahumanrightsorientationtoconflicttransformationefforts

Followingthe2008post-electionviolenceinKenya,theBMZcommissionedGTZtoconductaPeaceandConflictAssessment(PCA)toenhanceconflict-relevantprogramming.Itrecommendedaddressingexistingbarrierstoenhancesocialcohesionandidentifiedfivepeace-buildingneeds(PBN):increasedsecurity;reducedimpunity;involvementoflocalleadersinthepeaceprocess;changeinculturalattitudesregardingdistributionpatterns;anddeclineinregionaldisparities.Thesefindingsillustratehoweffortsgearedtowardshumanrightsrealisationandthosefocusedonconflicttransformationarecomplementarytoeachother,becauseallPBNidentifiedthroughthisPCAarerelevantfromahumanrightsperspective:thefirstrelatestotherighttopersonalintegrity;thesecondtotherighttoredressandfairadministrationofjustice;thethirdtoparticipation;thefourthtonon-discriminationandaccessibility;andthelasttonon-discrimination.GiventhehumanrightsrelevanceofallPBN(whichwasnotintentionallypursuedorrecognisedatthetime),itwouldbeusefultoconsiderhumanrightsexplicitlyintheimplementationofthePCAandanyfurtherfollow-up.Doingsomaywellyieldsomeideasforadditionalmeasuresthatcanbetakentostrengthenprogramming;itcanalsohelpenhancethelegitimacyoftheprocess.


2. Important Terms

ConflictTransformationConflicttransformationisconcernedwithaddressingthevariousmanifestationsofconflictandtheunderlyingconditions,attitudesandrelationshipsthatgiveriseto,andsustainviolentconflict,withaviewtodevelopingsustainablepeace.Byfocusingonthewidersocial,politicalandculturalsourcesofaconflict,conflicttransformationgoesbeyondtheconceptofconflictmanagement,whichfocusesontheconstructivehandlingofconflictsoastocontainitandpreventtheuseofviolence.InGermandevelopmentcooperation,conflicttransformationisoftenusedsynonymouslywiththetermpeacebuilding.TheciviliansideofconflicttransformationisemphasizedintheGermancontext(i.e.CPSmeansbothCivilandCivilianPeaceService).

ConflictSensitivityConflictsensitivitymeanstakingintoaccountthetwo-wayinfluencethatexistsbetween(latentandmanifest)conflictand(development)measurestaken,withthegoalofavoidinganynegative,conflict-aggravatingimpactsandstrengtheningpositive,de-escalatingandpeace-promotingimpacts.

PeaceandConflictAssessment(PCA)PCAisamethodologicalframeworktoensureaconflict-sensitive(workinginconflict,inthesenseofdonoharm)orconflict-relevant(workingonconflict,soastocontributedirectlytoconflicttransformation/peacebuilding)designandsteeringofdevelopmentmeasures.PCAcomprisesthefollowingelements:1)peaceandconflictanalysisanddefinitionofpeace-buildingneeds;2)peaceandconflict-relatedrelevanceassessments;3)riskmanagement;and4)peaceandconflict-relatedimpactmonitoring.PCAscanbeconductedbothatthecountrylevel(throughregularanalysisandevaluationofacountryportfolioandpriorityareastrategies)andattheproject/programmelevelasintegratedpartoftheimplementationcycle(analysisandevaluationofprogrammescopeorsectorenvironment).

Human RightsHumanrightsareinherenttoallpeoplesimplybecausetheyarehumanbeingswithinnatedignity.Allhumanrights–civil,political,economic,socialandcultural-areinterdependentandindivisible:e.g.therighttoeducationhelpspeopletoexercisetheirrighttofreedomofopinion.Stateshaveinternationallyagreedtobelegallyboundbythesestandardsandprinciplesthatapplytoalllevelsofthestateandallbranchesofgovernment.Somehumanrightsmustbefulfilledwithoutdelay,suchastherighttonon-discriminationandtherightnottobetortured.Otherrightsmaybeachievedprogressively,takingintoaccounttheconstraintscreatedbylimitedresources.

Human Rights-Based Approach (HRBA) to DevelopmentProtectingandpromotinghumanrightsisoftenassociatedwithfacilitatinglegalredress,enhancingaccesstojustice,andundertakingadvocacyandlitigation.AHRBAgoesbeyondthisnarrowunderstandingandstressestheequalweightandinterdependenceofpolitical,civil,social,economicandculturalrights.Italsohighlights


thathumanrightsmustbeavailable,affordable,accessibleandthattheymustbeimplementedinawaythatisculturallyadequate.ApplyingaHRBAmeansusinghumanrightsstandards(e.g.therighttofood)andhumanrightsprinciples(suchasnon-discrimination)asguidanceandreferenceinthedesign,implementationandevaluationofdevelopmentinterventionsacrosssectors.Itoperationaliseshumanrightsbysettingclearobjectivesandintegratingthemintodevelopmentinterventions(e.g.anaverageofminimumof20lofwaterperdayperpersonacknowledgingthatadditionalamountsmaybeneededforsomeindividualsorgroups,duetohealth,climateorworkconditions).Thereby,theHRBAensuresthattheprocessesusedtoachievehumanrightsareinclusive,non-discriminatory,transparent,andaccountable,andthattheypromoteparticipation,especiallyofpersonsandgroupswhoareusuallyexcluded.

AHRBAimpliesashiftinperspective:targetgroupsturnfrombeneficiariesintorights-holderswithlegalentitlements;publicinstitutionsareseenasduty-bearerswhoareobligedtodeliveronpeople’shumanrights.AHRBAacknowledgesthatunequalpowerrelations,socialexclusionanddiscriminationdenypeopletheirhumanrights,keeptheminpovertyandmayleadtoviolentconflict.Itseekstosupportreformprocessesthataddresssuchinequalitiesandcreateanenvironmentinwhichpeoplehavetheopportunitiesandthefreedomtomakeandactupontheirownchoices(formore information on the HRBA see Annex Box26).

Diagram:TheHumanRights-BasedApproachinGermanDevelopmentCooperation

Source:GTZ(2009):TheHumanRights-BasedApproachinGermanDevelopmentCooperation


3.TheInterconnectednessofHumanRightsandConflict Transformation

3.1HumanRights,Conflict,PeaceandDevelopmentHumanrights,conflict,peaceanddevelopmentareinextricablylinked.Numeroussituationsaroundtheworldshowthatviolentconflictimpedesdevelopmentandleadsto serious human rights violations: think of the 1994 genocide in Rwanda, in which morethan800,000peoplediedinjust100daysandmorefledtheirhomes.Yetthereversealsoholdstrue:violentconflictcanresultfromfailuretoprotecthumanrights.InSriLanka,forexample,thelong-standingexclusionoftheTamilminoritybythestate,dominatedbytheSinhalesemajority,ledtoalong-lastingcivilwar.Violencefirstflaredupinthe1950swhenTamils’righttolanguageandequalaccesstoeducationwasdenied(SinhalaOnlyAct,1956);itpersisteddueto,amongstotherthings,thestate’sviolentrepressionofTamildissent,andTamilradicalisationlinkedtorisingeconomicdeprivationandpoliticalmarginalisation.Thus,asustaineddenialofhumanrightsgaverisetoviolentconflict.Insum,

Human rights violations can be both causes and symptoms of violent conflict

Humanrightsviolationsassymptomsofviolentconflictareusuallyveryvisible.Theycanincludeexcessiveuseofforcebythepolice,intimidationofpoliticalopponents,censorship,tortureorextrajudicialkillings.People’ssocialandeconomicrightsarealsoclearlyaffected,throughdestructionofcivilianinfrastructure(healthclinics,schools,courts);useoflandminesanddisplacementofcivilianpopulations.However,itisoftenhardertodiscernstructuralrightsviolationsthatcauseviolentconflictovertime,becausethesetendtobeembeddedinsystemsofgovernance.Forexample,acountry’slaws,policiesorpracticesmayinstitutionalisediscrimination(asillustratedbytheSriLankaexampleabove);seriousdisparitiesbetweenidentitygroupsmightexist,withsomehavinglessaccesstoresources.Ortheremaybeaconsistentlackofdevelopmentinregionswherethemajorityofinhabitantsaremembersofasocialgroupdifferentfromthepoliticallydominantgroup.Thissituationmayberootedinhistoricalexclusionsthatreachfarintothepast.Suchadenialofhumanrightsmaynotbevisibleinitially,butovertimeitcreatesstructuralconditionsthatgeneratetensionsinsocietyascertainindividualsorgroupsaresystematicallydisadvantaged,andareviewedthroughaprismofprejudicesandnegativestereotypes.Thisisoftenreferredtoas‘structural’and‘cultural’violence,andsuchasituationprovidesfertilegroundfortheoutbreakofdirectphysicalviolence.

Whenindividualsorgroupsfindthattheycannotrealizetheirhumanrights,theyarelikelytoexpressdiscontent.Iftheycannotdosopeacefully(e.g.bylodgingcomplaintsormobilisingpressuregroups),oriftheyarenotfeelingheardoracknowledgedoveralongperiodoftime,theymayresorttophysicalviolencetoensureattentiontothedesiredchange.Ofcourse,itshouldbeacknowledgedthatastate’sfailuretoprotecthumanrightsisnotalwaysduetoactiverepression.Inmanyfragilestates,thestateis


unableratherthanunwilling,torespectandrealizetherightsofitscitizens.Thismayforexamplebeduetoweakinstitutionsorlackofresources.Hence,

Exclusion and denial of human rights in a given context are often a primaryreasonforconflictandviolence,bothlatentandmanifest.

Aconflicttransformationperspectiveonhumanrightssuggeststhatasustaineddenialofhumanrights,irrespectiveofhowitcomesabout,meansthatbasichumanneeds-relatedtoidentity,welfare,freedomandsecurity-arefrustrated.Itisimportanttonoteherethatdifferentunderstandingsofthenotionof‘needs’exist.Inthecontextofdevelopmentcooperation,‘needs’haveoftenbeenassociatedwithmaterialandsocialgoods-food,shelter,clothing,schooling,medicalandpsychosocialcare.AHRBAprovidesashiftinperspectivebyfocusingattentiononrights-holders(citizensinfocalcountries)andduty-bearers(statepartners).Developmentcooperationisthennotaboutprovidinggoodsandservices,butrather,aboutbuildingthecapacitybothofrights-holderstoclaimtheirrightsandofduty-bearerstorealizethem.Theapproachoftheconflicttransformationfieldwhichshallbeusedhere,considers‘basichumanneeds’asrelatingnotonlytolivelihoodsandthematerialcontributiontowell-being,butalsotoissuesofidentity,freedom,andsecurity.Broadlyspeaking,theconflicttransformationfieldrelatesneedstoaccess(politicalandeconomicparticipation);acceptance(recognitionofidentityandculture);andsecurity(nutrition,housing,physicalsecurity/protection).Suchneedsarenon-negotiable,meaningthatpeoplecannottradethemawayorignoretheirexistence;basichumanneedscentrallyshapehuman behaviour and actions.

Thisbroaderunderstandingofneedsclearlyshowsthathumanrightsandbasichumanneedsareinterrelated:comparingbasichumanneedssuchasidentity,freedom,securityandacceptancewiththehumanrightscontainedintheUniversalDeclarationofHumanRightsillustratesthatallhumanrightsrelatetobasichumanneeds.Forexample,exercisingtherighttospeakone’sownlanguageaddressesneedsofidentity,freedom,acceptanceandparticipation.Freedomfromdiscriminationmeetsneedsofidentity,freedom,participation,protectionandacceptance.Fairadministrationofjusticeaddressesaccessandsecurityneeds.Self-determination,usuallyconceivedofintermsofrights,canbeunderstoodasacollectiveneedforidentity,freedomandsecurity.Inotherwords,humanrightsrealisationisameanstosatisfybasichumanneeds,becauseithelpstosecurethegoods,servicesand/orconditionsnecessarytomeetthem.Thecloserelationshipbetweenhumanrightsandbasichumanneedsalsohelpstoexplainwhysocialtensionusuallyariseswhenpeoplecannotexercisetheirrights,astheycannotdismisstheirunderlyingneeds.Thistensionisnotperseproblematic–onthecontrary,itgeneratesenergythatcanstimulatedifferentstakeholdersinthesocietytotakestepstowardsthedesiredchange.However,ifsuchtensionisignored,expresseddestructivelyorrepressedbythepowersthatbe,itincreasesthepotentialforphysicalviolence,especially.(Intheremainderofthetext,theuseoftheterm‘violence’withoutspecificationwillrefertophysicalviolence.)


Thus,

Denial of human rights, or failure to protect human rights, means that basic human needs are frustrated, which generates tension in society. The lack of mechanisms to claim rights and facilitate the satisfaction of the underlying needs increases the potential for the outbreak of violence.

Fordevelopmentpractitionersconcernedwithhumanrightsandconflicttransformation,thecloserelationshipbetweenfailuretoprotectrights,societaltensionsandthepossibleoutbreakofviolencehasseveralimportantimplications:

1. Forviolencepreventionpurposes,itisasimportanttofocusonthestructuralcausesofconflictthatmightleadtoviolenceandhumanrightsviolations,asitistofocusondirectphysicalviolenceitself.

2. Institutionalisingrespectforhumanrightsthrough-forexample,constitutionalendorsementofrightsorestablishinganationalhumanrightsinstitution/complaintsmechanism–isanimportantstrategyforviolenceprevention:ithelpstoaddressbasichumanneedsandcontributestothedevelopmentofsocietalmechanismsforconstructiveconflictmanagement.

3. Specificattentionmustbedevotedtoaccommodatingdiversityandprotectionofminorityrights.Itiscrucialtoformallyentrenchinclusivenessandrespectfordiversityinthepoliticalsystem,stateinstitutionsandthelaw,becauseidentitygroupsarekeyactorsincontemporary,intra-stateconflict,whereleadersmobiliseastrongsenseofidentitytoraisegrievancesrelatedtoneedsdeprivation.

TheAnnexprovidesmoreinformationontherelationshipbetweenconflictandhumanrights:

▪ SeeBox 1formoreexplanationandexamplesofhowhumanrightsviolationscanbesymptomsandcauses(bothproximateandstructural)ofviolentconflict.

▪ Box 2providesaschematicillustrationofhumanrightsviolationsascausesandconsequencesusingthemetaphorofaniceberg.

▪ Box 3developsthisicebergimagefurthertoexplainhowtheproblemstobeaddressedatthese two levels differ, as do the desired outcomes and the activities to be undertaken.

▪ SeeBox 4formoreinformationontheconflictfield’sunderstandingofbasichumanneeds, and Box 7forexplanationofthetermsdirect,structuralandculturalviolence.

3.2 Shared Vision, Different Theories of Change, Complementary ApproachesThepreviousdiscussionhighlightsthatitisnotpossibletotransformconflictwithoutaddressingtheunderlyinghumanrightsviolations,suchasdiscriminationofspecificethnicgroupsintheiraccesstoresources(suchasland,water,education,andpoliticalpower).Essentially,justiceandpeaceareoverlappingvaluesthatareinterlinkedandinterdependent.Botharenecessaryforsustainabledevelopment.Humanrightseffortsaimtocreateconditionsinwhichindividualsandgroupsare


protectedagainstabuse,haveaccesstofairandinstitutionalisedmechanismsforholdingthestateaccountable,wheretheirdignityisrespectedandwheretheycandeveloptheirfullpotentialandshapetheirownlivesandsocietyaroundthem.Conflicttransformationworkseekstoachievesustainablepeace:conditionscharacterisedbysocialjusticethroughequalopportunityandprotection,afairdistributionofpowerandresources,impartiallawenforcement,healthyinter-grouprelationswhereindividuals,communitiesandinstitutionsareabletonegotiatedifferencesandhandleconflictconstructively,withoutviolence.Thus,

Humanrightsandconflicttransformationsharethesamevisionaboutthe desired nature of society. Both seek to support and facilitate peaceful processes of social change.

Yetthetheoriesofchangethatinformthehumanrightsandconflicttransformationperspectivesdifferrespectively(Babbitt2009).Intheformer,ideasaboutsocialchangearerootedinthelaw-basednatureofhumanrights.Changeiscreatedbydefiningthedesiredendstate,referringtotheidealsentrenchedindomesticlegislationandinternationaltreaties,andthenpushingstatestomeettheseidealsandfindingadditionalmeanstoreachthatend.Whilehumanrightsactorsrecogniseinpracticethatchangewillonlygraduallytakeplace,theyseektobringforthanychangebydemandingtheideal.Thehumanrightsfieldthusdesignsinterventionsinawaythatstrivesforandplansbackwardsfromtheidealstate.Itusesmethodssuchaseducationandempowermentofrights-holders,capacity-buildingofduty-bearersandpressurefromtheinternationalcommunity,emphasisingthatgovernmentandcommunitiesabidebyinternationalhumanrightstreatiesandnormsandputtheseintopracticethroughlegislationandothermeans.

Atthecoreofconflicttransformationwork,liesthenotionthatchangecanonlytakeplacewhenactorswithinthesocietywantitandconsideritviable,andthatchangecannotbeimposedfromoutsideorabove.However,itmightwellbeencouragedorsupportedbythirdparties.Itthusfocusesondesigningconstructiveprocessesthatopenuppossibilitiesforpositivechangetomaterialisebysupportingtransformationofbehaviour,attitudesandstructures,assumingthatsuchachangeprocesswillultimatelyleadtoafairandsustainableendresult.Tothisend,itconcentratesondrawingoutandfacilitatingunderstandingoftheneedsandinterestsofallparties;ensuringfairnessandinclusionofalldirectlyandindirectlyaffectedstakeholders;enablingthepartiestolistentoeachotherandengageconstructively;andmakingexternalexpertiseavailabletothepartiestoaddtotheirownknowledge.

Thus,wherehumanrightscanbeconsideredasprovidingminimumstandards,i.e.abottomline,conflicttransformationhighlightsthat–usefulasminimumstandardsare–theyhavetobeowned,shapedandlivedbyactualpeopleinanactualcontext.Evenso,pointsofconnectionexist,asthehumanrightsperspectiveviewstheenvisionednormsastheouterframeforalivingandmovingreality,whichrequiresrulesthataresomewhatelasticinpracticeandyetnon-negotiableinprinciple.Developmentpractitionersfocusingonhumanrightsandthoseworkingonconflicttransformationarethusgenerallyconcernedwiththesameissues.Workingwithdifferenttheoriesof


change,theymayapproachtheseissuesfromdifferentangles.Thismeansdefiningdifferent target audiences, addressing different actors and using different strategies.

Forexample,bothareconcernedwithovercomingdiscrimination.Fromahumanrightsperspective,discriminationmustbeabolishedbecauseitcompromisesindividuals’andgroups’dignityandthusviolatestheirrights.Fromaconflicttransformationperspective,discriminationmustbeaddressedbecauseitisacurrentorpotentialcauseofviolentconflict.Thetargetaudiencesandkeyactorsidentifiedthroughthesedifferentrationalesarelikelytooverlapinmanyrespects,butvaryinothers.Or,iftheyareidentical,theorderinwhichtheyaretargetedmaydiffer.

Humanrights-baseddevelopmentprogrammeswillfocusonaddressingpeoplethatexperiencedirectorstructuraldiscrimination–suchasethnicgroups,sexualminorities,thedisabled,women–usuallywithafocusontheindividual.Besidestargetingsuchmarginalisedpersons,theywillalsoworkwithotherswhosebehaviourandattitudesimpactonmarginalisation:e.g.withmentoovercomegender-baseddiscrimination, or with religious leaders when countering discrimination based on sexualorientationorHIV/AIDS.Conflictandpeace-focuseddevelopmentwork,ontheotherhand,isparticularlyconcernedwithcommunitieswhosemarginalisationmightleadtotheoutbreakofviolence.Itwillthuspayspecialattentiontothosepersons,organisations,symbols,attitudesandvaluesthatmaydividepeopleinasocietyorcommunity(referredtoas‘dividers’),andtothosethatservetoconnectpeopleandstrengthenthefoundationforsustainablepeace(referredtoas‘connectors’).Itmaywellbethattheserealorpotentialdividersandconnectorsdonotnecessarilybelongtodiscriminatedgroups.Hence,developmentpractitionersworkingfromaconflicttransformationperspectivemayfocusonindividualsandgroupsthatarenotdirectlyimportantfromahumanrightsperspective,atleastinashort-tomid-termtimeframe.

Toillustratethisfurther,considerthefollowingexample.Itshowshow,inoneandthesamecontext,thedifferentanalyticalperspectivesofhumanrightsandconflicttransformationcanleadtodifferentstrategiesfordevelopmentprogramming:

Distinct but complementary analytical perspectives: access to justice and dispute resolution in Nepal

InNepal,thegovernmenthaslongbeenunableandunwillingtoensuretherightsandaccommodatetheinterestsofmarginalisedgroupsandpoliticalopponentsandtoaddresswidespreadpovertyandexclusion.Thishasbeenamaincauseofviolentconflictinthepast,andcontinuestogeneratetensionsinsocietyaftertheconclusionofacomprehensivepeaceagreementinNovember2006.Historically,excludedgroupshavehadfewpoliticalavenuesattheirdisposaltoexpressdissent.ThiswasduetoalackofrepresentationembeddedinthenatureofthepoliticalsystemandtheintensestratificationofNepalisociety.Lawenforcementhasbeenpoliticised,corrupt,andviolent,andhasoftenreplicatedsocietaldiscrimination.Variousdevelopmentprogrammesconcernedwithhumanrightsrealisationhaveidentifiedaccesstojusticeasoneofseveralkeyissuestobeaddressedsinceexcludedpersonsandgroupsgenerallydonotknowtheirrightsortheoptionstheyhaveforsecuringredress,andtheyareusuallyunabletoaccessthejudicial


system.Thishasledtoprogrammesfocusedon:enhancingaccesstojusticethroughdevelopingparalegalcapacityatlocallevel(withincommunity-basedorganisationsandinmarginalisedcommunities);provisionoflegalaid;enhancingrightsawarenessamongstlocalpopulations;targetingjudgesandlower-levelcourtofficialstoenhanceunderstandingof their human rights obligations and what this means for their own work and attitudes.

Developmentprogramsworkingfromaconflicttransformationperspective,ontheotherhand,arelikelytofocusmoreontheabsenceofmechanismsforconstructiveconflictmanagementatvariouslevelsinsociety.Thosewhofeelmarginalisedtendtoresorttodestructivebehaviour(e.g.throughtransportstrikes,called‘bandhas’;lockinglocalgovernmentoffices;abduction;physicalviolence)todrawattentiontotheircause.ThisisfuelledbytheexampleoftheMaoists,asmanyinNepalfeelthattheyprovedthatviolence‘works’bygainingsignificantpoliticaltractionfortheirideasandbywinningtheConstituentAssemblyelectionafterwagingawaragainstthestateformanyyears.Theexistingpoliticalculturealsoplaysarole,asitcentersonthenotionof‘winner-takes-all’andisaversetoaddressingdiverseinterestsandcollaboratingwithopponents.Thisconflicttransformationanalysismayresultin,amongstotherthings,acommunitymediationprogrammethatenhanceslocallevelcapacityfordisputeresolution,boostspracticesofnon-violentcommunication,mediation,andjointproblem-solving.Suchaprogrammecanshowthatpeoplefromdifferentbackgroundsmakeasignificantcontributiontothecommunitywhentrainedandfunctioningasmediators(e.g.women,youth,lowercastesorindigenousminorities).Thisapproachmayalsotargetlocalgovernmentsoitcanlaterassumeresponsibilityforthecommunitymediationprogramme,andgainappreciationforinterest-baseddisputeresolution.Itmayencouragelocalgovernmenttostartincorporatingmulti-stakeholderdialogueinitsownactivities,andfurtherinvolvesoutreachwithlawenforcement agencies to facilitate referrals of relevant cases for mediation.

SomedevelopmentagenciesinNepalhavecombinedelementsofbothapproaches.Theyhaveintegratedcommunitymediationinalargerlegalempowermentprogrammethatcomprisesdisputeresolutionthroughformaljudicialandnon-judicialsystems,andotherelementsoftheapproachesoutlinedaboveinformedbybothhumanrightsandconflicttransformationperspectives.

Thisexampledemonstratesthat:

Thehumanrightsandtheconflicttransformationfieldsofferdistinctanalytical perspectives on challenges to be addressed in societies affectedbyviolentconflict.Theyeachhavetheirownstrengthsandtheymay suggest strategies that are complementary rather than mutually exclusive. Together, they can contribute to achieving the long-term objectives of peace with justice and sustainable development, through a multidisciplinary and inclusive approach.

Ofcourse,whendevelopmentpractitionersexamineacountrylikeNepalfromahumanrightsoraconflicttransformationperspective,theiranalyticalfindingswillnotonlybeconfinedtoissuesofredress,accesstojusticeanddisputeresolution.Theiranalysisislikelytoresultinmanymoreandbroaderfindingsofissueswarrantingattentionandaction,pointingtotheneedforotherstrategiestoo.


Inthisregard,itshouldbenotedthattherearedifferentwaysofworkingonhumanrightsrealisation.Often,developmentpractitioners–includingthosefocusedonconflicttransformation–understandhumanrightsworkasmostlyoronlyrelatingtotheprotectionofcivilandpoliticalrightsandasinvolvingthe‘classical/traditionalstrategies’ofmonitoring,reporting,advocacy,awareness-raising,andlegalprosecutionofperpetrators.Theymaythusperceive‘humanrightswork’asbeingmostlyabouthumanrightseducation,namingandshaming,lobbying,legalredressandadversarialactivism.However,ahumanrights-basedapproach(HRBA)goesbeyondthisrathernarrowunderstandingofhumanrights.

AHRBAwillalsolookintotheformsandkeycausesofdiscriminationofspecificgroups.InacountrylikeNepal,thiswillhighlighttheneedforstrategiesforimprovingthepoliticalparticipationofthegroupsexcludedthusfar,goingbeyondthenarrowjudiciary-focusedhumanrightsstrategiesoutlinedintheexampleabove.Aconflicttransformationanalysiswillprobablysharethisemphasisonenhancingthepoliticalparticipationofmarginalisedgroups;itmayalsosuggeststrategiestotargettheexistingpoliticalcultureandleadershipstyle.Thus,meetingpointsandoverlapsbetweenaHRBAandconflicttransformationperspectivedoexist.Withinareasofcommonconcern,theHRBAwillemphasisethelegallybindingrightsofindividualsandgroupsandthedutiesofgovernmentalinstitutions,whilethelatterdevotesmoreattentiontorelationships,patternsofinteractionanddecision-making,aswellastocultural issues. Thus:

It is important to recognise that a human rights-based approach has a broad understanding of human rights. A HRBA seeks to empower those who are marginalised, enable broad and inclusive participation and to establish sustainable accountability mechanisms in society. As such, it offerspromisingavenuesforcooperationwiththeconflicttransformationfield.Theconflictfieldhasalsoevolved:fromanemphasisonconflictresolution(focusedonmanifestviolentconflictandtheirstructuralcauses)andconflictmanagement(orientedtowardsthenon-violenthandlingofconflict),toconflicttransformation(focusedontransforminglatentandmanifestconflictintopeacefulprocessesofsocialandpolitical change by addressing the underlying conditions, attitudes and relationships). This evolution also provides new entry points for cooperationwiththehumanrightsfieldthroughitsconcernwithboththesymptoms and the structural causes of violence.

YouwillfindmoreontheperspectivesontheconflictandthehumanrightsfieldintheAnnex:

▪ Box 5summarisesthedifferentperspectivesthathumanrightsandconflicttransformationbringtodevelopmentcooperationandstrategies.


3.3 Working towards Conversation and Connection between the Fields of HumanRightsandConflictTransformation

Thecloserelationshipbetweenhumanrightsandconflictmeansthatwhenweareconcernedabouttheprotectionandpromotionofhumanrights,wehavetopayattentiontobothlatentandmanifest,violent,conflict–intermsofitsnature,causes,anddynamics-andhowtoaddressthese.Similarly,whenweseektoaddresstheunderlyingconditionsinaparticularcontextthatgiverisetoviolentconflict,orwhenwewanttopositivelyimpactonconflictdynamicsandpreventtheoutbreakofviolence,weneedtoconsiderhumanrights.Thefollowingexample,basedonexperiencesinSriLanka,illustratesthis:

Enhancing credibility and relevance through human rights: conflicttransformationinSriLanka

Afterthe2002ceasefireagreementinSriLankabetweenthethengovernmentandLTTE(TamilTigers),theattentionoflocalcivilsocietyorganisations(CSOs)andtheinternationalcommunityshiftedlargelytonegotiationsbetweentheconflictingparties.AstheinternationalSriLankaMonitoringMissionwasintroducedtomonitortheceasefire,mostagenciessoughttosupportthepeaceprocessatvariouslevelsofsociety.Inthiscontext,onbehalfofBMZ,GTZstartedFacilitatingLocalInitiativesforConflictTransformation(FLICT)in2003.Theprojectaimedatconflicttransformationthroughencouragingamoreinclusiveculturalidentity;enhancinglinksbetweendifferentethnicandreligiousgroupsinSriLanka;andincreasingcivicparticipationingovernance.Overtime,FLICTwascriticisedbylocalhumanrightsorganisationsforpayinginsufficientattentiontohumanrightsconcerns.Itscredibilitywascalledintoquestion,asitbecameclear that both the Sri Lankan government and the LTTE committed numerous rights abuses.FLICTdecidedtostartsupportinghumanrightsworkinthecontextofitsthirdfocusarea(civicparticipation),byallocatingfundstohumanrightsmonitoring,reportingandstrengtheningnetworksbetweenHRandCTpractitioners.Thiscreatedanewchallengebecausethestatedidnotappreciatehumanrightsactivismandmonitoring,andtheprojectwas–asallGTZwork–basedonabilateralagreementbetweenthegovernmentsofGermanyandSriLanka.Still,“hadwenotlookedathumanrights,”theformerGTZAdvisorofFLICTsays,“wewouldnothavebeencredibleinthelocalcontext.It would have looked as if we were naïve, as if we did not look at the hard issues on the ground.Wehadtopayattentiontohumanrightsinordertoremainbothcredibleandrelevantinwhatweweretryingtodo.”

Thus:

It is necessary and useful to consider insights and approaches from both perspectives to enhance development practice geared towards human rightsrealisationand/orconflicttransformation.

Ataminimum,thismeansthatwhenplanningorcarryingouthumanrightsorconflicttransformationinterventions,the‘other’perspectivemustbetakenintoaccount.Thepurposeofdoingsoistoidentifywhetheronehasmissedanythingintheanalysisthat


caneitherharmtheimplementationorthatshouldbeincorporatedtostrengthentherelevance,efficacyand(perceptionsof)legitimacyofwhatoneseekstodo.

Atthemaximum,itmeansthatoneshouldtrytoharnessinsightsandstrategiesfrombothhumanrightsandconflicttransformationandcombinethesetodevelopamoreintegrated,comprehensiveprogrammethatcontributesbothtorealisinghumanrightsandtothetransformationofconflict.

Workinginsuchanintegratedwayisstilltheexceptionratherthantheruleatthisstage.Thismeansthatgoodpracticesarelackingandthatdetailedguidelinesonwhatanintegratedapproachentailsorconcretelylookslikearenotavailableyet.However,thetoolssetoutinthenextsectionprovidesomeguidanceforworkingtowardsamoreintegratedapproach.Theexamplesusedinthepublicationalsoofferinsightinto the range of strategies that can be combined in this regard. These tools further demonstratethatbothfieldshavedevelopedconsiderableexpertiseovertheyears;thisiscontinuallyevolvingandcontributestodevelopmentpracticeingeneral.

Whenlookingtobeinformedbyinsightsandapproachesfrombothfields,oneshouldkeepinmindthattherearedifferentwaysofworkingonhumanrights(see section 3.2).Thefollowingexampleshowshowarathernarrowunderstandingofhumanrights,asrelatingonlytocivilandpoliticalrightsandtonamingandshaming,wasinitiallyimplicitintheFLICTprogramme:

Making inherent human rights linkages explicit

TheformerGTZAdvisorofFLICTindicatesthatatthetime,sheandhercolleaguesonlyperceived‘workingonhumanrights’intermsofmonitoringandadvocacyforpoliticalandcivilhumanrights.Reflecting,shesaysthat,“weneverreallysawourthreefocusareasinhumanrightsterms.Wejustlinkedthesupporttohumanrightsworktocivicparticipationbecausethatseemedmostappropriate;itrelatedtomonitoringthestate.Ihavesinceunderstoodhowhumanrightsrelatetoallfocusareas,especiallytoculturalidentity.Ifwehadknownin2005whatahumanrights-basedapproachis,itwouldhavebeenuseful.Wemighthavepreventedsomeofthecriticismleveledagainstus[forignoringhumanrightsconcerns].Thenwecouldhaveexplainedhowwepaidattentiontohumanrightsinthecontextofourconflicttransformationworkthroughfocusingoninclusion,participation,accountability,etc.,besidesgettinginvolvedinoutrighthumanrightsactivism.”

ThisFLICTexampleillustratesthatahumanrights-basedapproachmayprovideadditionalavenuesforworkingonhumanrightsbeyondmonitoringrightsviolations,advocacy,andsecuringlegalredress–namelybyintegratinghumanrightsstandardsandprinciplesintodevelopmentprojectsandprogrammesthatarenotexplicitlygearedtowardshumanrightsworkandgoals.AHRBAcanthusofferentrypointsforworkingonhumanrightsinthecontextofconflicttransformation-orienteddevelopmentactivities.

Thesynergythatexistsbetweenhumanrights(broadlyconsidered)andconflicttransformationmeansthatworkingtowardstheonecanhaveapositiveimpactonthe


otherandthatcombiningbothmakesdevelopmentinterventionsmoreeffectiveandefficient.Theboxbelowprovidessomeinformationonhowworkintheareaofhumanrightscancontributetoconflicttransformationefforts,andviceversa:

Waysinwhichhumanrights/HRBAworkisrelevantforandcanadvanceconflicttransformation

▪ Humanrightsareaninternationallyagreedlegalframework.Inconflicttransformationprocesses,humanrightsstandardsprovidetheparameterswithinwhichsolutionsmustbefound,andhumanrightsprinciples(relatingtoparticipation,transparency,accountability,accessibility,etc.)caninformthedesignofsuchprocesses.

▪ AHRBAaddressesmanyoftherootcausesofconflictbecausehumanrightsconcernsare often at the core of conflict.

▪ AHRBAhelpstoinstitutionaliseinteractionbetweenmarginalisedgroupsandthestateinasustainable,non-violentway(forexample,throughcomplaintsmechanisms).

▪ Institutionalisedhumanrightsmechanismscanactassafeguardagainstabuseofpower,andfunctionasmechanismsforconstructiveconflictmanagement(byprovidingchannelsforraisingdiscontentandseekingredress).

▪ Humanrightscanofferasourceofcommonvaluestobridgedifferencesamongstparties/communities,andtalkingabouthumanrightscanprovideaforumwhereopposinggroupscanengagewithoneanotheracrossdivisions.

▪ Humanrightsreportingcanprovideearlywarninginformationonpotentialinter-grouptensionwhichactorsconcernedwithconflictpreventionandtransformationcanactupon.

▪ Thepresenceofhumanrightsmonitorscanserveasadeterrentinsituationsofpoliticalinstabilityandviolentconflictandcanthushelptoreduceviolence.

Waysinwhichconflicttransformationworkisrelevantforandcanadvancehumanrights

▪ Engagingopposingpartiesorgroupsinaprocessofdialogue,canprovideafacilitatedchannelofcommunicationforairinggrievancesrelatedtoinjustice,insecurity,inequalityandinequity.

▪ Conflicttransformationaddressesthedirect,culturalandstructuralinequalitiesthatoftenrepresentviolationsofhumanrightsandgeneratelatentandviolentconflict.

▪ Conflicttransformationoffersarangeofpractices,instrumentsandtoolstoaccompanytheprocessofsocialtransformationthatbothconflicttransformationandaHRBAseekto trigger.

▪ Conflicttransformationinterventionspromoteandmodelconstructive,non-violentwaysof dealing with conflict and can facilitate access to redress.

▪ Peaceeducationisanareaofconflicttransformation,whichcoversvariousissuesincludingidentity,causesofconflict,non-violentcommunication,conflictmanagement,humanrightsvalues,principlesandstandardsaswellasempowermenttoclaimhumanrightsinaconstructiveway.

▪ Conflicttransformationworkwithlocalmediainadividedsociety,opensupandincreasesthedemocraticspace,promotesfreedomofspeechandmakesitlesslikelythat the media is used to incite violence.


▪ Conflicttransformationputssignificanteffortintoenhancingrelationships,capacitiesandnetworksamongstpeopleandcivilsocietyorganisations(e.g.peaceconstituenciesacrosspolitical/ethnic/linguistic/religiousdivides);thisfacilitatesrecognitionofhumanityanddignityamongstopponents;promotescivicengagement,freedomofspeechandassociation(e.g.mothersofdisappearedindividuals,fromopposingsides,unitingandfightingfordisclosureonthefateoftheirlovedones.)

Thusfar,thispublicationhashighlightedtheneedtoconsiderinsightsandapproachesfrombothperspectiveswhendesigning,implementingandreviewingdevelopmentinitiatives,evenifsucheffortsaregearedtowardsobjectivesunrelatedtohumanrightsorconflicttransformation,ortowardsobjectivesorientedtoonlyoneortheother.Itisimportanttonotethattherearespecificareas,whichareparticularlysignificantfrombothperspectives.Thesecouldprovidestartingpointsforfurtherexplorationoftheinter-linkagesbetweenthetwofields,andforadvancinghumanrightsandconflicttransformation at the same time:

▪ Landreform:remediesinequitableaccesstoandownershipofland;reduceslandinvasions;reducesexploitationofandviolenceagainstthosewithlittleornoaccesstoland;improvestheirstandardoflivingandassociatedrights;eliminatesflawedlegislationthatendorsesdiscriminatorypracticesorfailstoprovidesecurityoftenure;servesaconflictpreventionfunctionbyaddressingarootcauseofconflictthatwill,ifnotaddressed,continuetogeneratetensionsinsociety(e.g.thePhilippines,Zimbabwe,Guatemala).

▪ Dealingwiththepast/transitionaljustice:providesredressforvictims;addressesimpunity;establishesanauthoritativerecordofwhathappened;laysbasisforinstitutionalreform;generatespublicdialogueonpastabusesandconditionsfacilitatingthese;canprovidespaceandprocessesfortraumarehabilitation,socialhealing,andreconciliation.

▪ Securitysectorreform:enhancesciviliansupremacyoverthesecurityforces;establishesinternalaccountabilitymechanisms;setsclearstandardsforuseofforcebysecurityforces.

▪ Justicesectorreform:enhancestheeffectiveandlegitimatefunctioningofcourtsandlawenforcement;improvesaccesstojustice;increasescomplianceofdomesticlawswithinternationalstandards;setsupindependenthumanrightscomplaintsmechanisms.

▪ Disarmament,demobilisationandreintegration:reducesproliferationofarms;facilitatescombatants’re-engagementwithcivilianlife,re-definitionofselves,andtheirmeaningfulparticipationincommunityandsociety.

▪ Supporttomedia:enhancesmediafreedom,pluralismandprofessionalism;strengthensrightofinformation,freedomofexpression,citizens’participationinpublicaffairsandaccountability;providesforumfordialogue;buildscapacityforconflict-sensitivejournalism.

▪ Localgovernanceanddecentralisation:improvesservicedelivery;enhancescitizens’participationindecision-makingprocesses;contributestothestate’slegitimacy.


IntheAnnexyouwillfind:

▪ Box6a and Box6bprovidemoreinformationonspecificcontributionsofbothfieldstoeach other.

▪ Box 8providesmoreexplanationontheareasnotedabovewhichareofconcerntobothhumanrightsandconflictpractitionersandwheredevelopmentprogrammingshouldincorporateinsightsfrombothperspectives.

▪ Box 25explainsinmoredetailhowhumanrightsstandardsandprinciplescanprovideguidelines in dealing with land related conflicts.

▪ Box26listsreferencestodocumentsexplainingahumanrights-basedapproachtodevelopment,includingbriefingsheetson‘promisingpractices’thatdescribetheapplicationofaHRBAtovarioussectorprogramsinseveralpartnercountries.Box28providestitlesofsuchbriefingsheetsonpromisingpractices.

▪ Box 27brieflysummarizesthehumanrightsestablishedintwokeyinternationalhumanrightstreatiesthatarelegallybindingforthestatesthathaveratifiedtheseinstruments.


4. Practical Application

4.1IncorporatingInsightsandInstrumentsfromthe‘Other’FieldTheprevioussectionshighlighttheaddedvalueofengagementbetweenpractitionersworkingfromdifferentperspectivestoalignandconnectbothfieldsfurtherinfuture.Asafirststepthisrequiresdevelopmentpractitionersworkingineitherhumanrightsorconflicttransformationtoenhancetheirknowledgeoftherespectiveotherfield.Thismeansdevelopinganunderstandingoftheanalyticalperspectiveoftheotherfield,aswellasitsunderlyingvalues,methodsandstrategies,soastoenhancethescopeforfruitfulcollaborationandcross-fertilisation.Tothisend,humanrightsandconflicttransformationpractitionersneedtointensifytheirinteractionswiththeconsciousintentionoflearningfromoneanother.Facilitatedprocessesofexchangemayalsobeusefulinhelpingthemgaingreaterappreciationofwhathumanrightsandconflicttransformationperspectiveseachcontributetodevelopmentpractice.Thissectionintroducessomeideasandtoolsthatcanhelpdevelopmentpractitionersinlinkinghumanrightsandconflicttransformationandbuildingonthesynergythatexistsbetweenthetwofields.

Considerthefollowingexample:

Refiningaconflicttransformationprogramme:theMuseoVirtualdelaHistoriainGuatemala

DuringareviewoftheGTZGuatemalanProgramaApoyoalProcesodePazyConciliacionNational(PeaceProcessSupportProgramme–PCON)whichwasimplementedonbehalfofBMZ,thequestionaroseofhowbesttosupporttheMuseoVirtualdelaMemoriaHistórica(VirtualMuseumofHistoricalMemory).ThisisaninteractiveInternetplatformthatassemblesinformationaboutthecivilwarandmakesitpubliclyavailabletoallcitizensforthefirsttime.Itseekstostimulatepublicdebateabouthumanrightsviolationscommittedduringthecivilwar.Inthelongerterm,theplatformaimstosupportstrategiesandpoliciesbywhichthoseresponsiblecanbeheldtoaccount,andthosevictimisedcanbecompensated.Thereviewofthispeace-orientedprogrammeidentifiedseveralgapsfromahumanrightsperspective,relatingtoaccessibility,transparency,accountability,anddiscrimination.Forexample,theplatformwasdesignedinsuchawaythatitwasmostlyaccessibletourban,literateInternetusers,eventhoughmost victims of human rights violations are indigenous, illiterate, rural women. The measurestakentoaddressthegapsidentifiedwereguidedbyfivecriteriadevelopedonthebasisofhumanrightsstandardsandprinciples.Toenhancenon-discriminationandaccessibility,informationontheplatformwasmadeavailableinMayanlanguages;soundandvisualsymbolswereaddedtoenableilliterateuserstonavigatetheplatform.Toenhanceaccountability,afeedbackmechanismwasestablished(users’board)anduserswereencouragedtoparticipateinacommitteetoincreasepublicacceptanceofthemuseum.Withaviewtoensuringparticipationandtransparency,thepublicwasinvitedtoprovideinputwithregardtothedesigntocatertotheinformationneedsofprospectiveusers.


Thisexampleillustratesthat

Knowledge and integration of human rights standards, values and principles can strengthen the design, implementation and monitoring of conflicttransformationinterventionsandprogrammes.

Rightsanalysiscanalsostrengthenconflictanalysis(byfocusingattentiononstructuralcausesofconflict,amongstotherthings).Itisfurtherusefulinassessinghowaproject/programmecanenhanceinteractionbetweenstateinstitutionsandcitizens,andhowitcanincreasetheaccountabilityoftheformer.Thehumanrightsemphasisondisaggregatingdataaccordingtosex,socialstatus,citizenship,ethnicity,etc.,canbenefitresultsandimpactmonitoringofconflicttransformationprogrammes.

Finally,knowledgeofhumanrightsstandardshelpstoensurethatconflicttransformationprojects/programmesabidebythemandnotunwittinglyfacilitatesolutionsthatcompromisepeople’srights.Theexamplebelowdemonstratesthis:

Facilitating agreements in line with legal entitlements: improving land distribution in Nepal

InNepal,individualswhotillthelandofothersforaspecificperiodoftimemayregisteraclaimtoownershipofaportionofthatland,iftheyareformallyregisteredastenantsinthelandcertificateofthelandowner.Legally,suchregisteredtenants/farmersareentitledto50%oftheland.Landdisputesareattimesdealtwiththroughcommunitymediation,inwhichtrainedmediatorsfromthelocalcommunityfacilitatenegotiationsbetweenthefarmerandtheownertohelpthemsettletheclaimthroughamutuallyacceptableagreement.Becausefewfarmersknowtheformallegalstandards,afarmermayreactpositivelywhentheowneroffershim/her25%.Bargainingusuallycoversaspectrumbetween25-35%;mostfarmerstendtosettleatathirdoftheland(30-33%).Whilethisseemslikeamutuallysatisfactoryoutcome(andwouldassuchbeacceptableinthecontextofmediation),itdoesnotcomplywiththelaw.Itcanthusgenerateconflictbetweenthefarmerandtheownerinfuture,oncetheformerfindsoutthats/hewasactuallyentitledto50%oftheland.Themediatorthusneedstoknowthelegalstandardtopreventaflawedagreementthatcompromisesthefarmer’srights.Suchknowledgecanalsohelpthemediatortoleveltheplayingfieldbetweentheparties.InNepal,thepowerimbalancebetweenthepartiesisusuallysobigthatthefarmerwillfinditdifficulttochallengetheownerevenifs/hedoesknowthescopeofhis/herentitlement.Thismeansthatthefarmerisunlikelytorejectanoffermadebytheownerand/orfirmlyasserthis/herrights.Insuchinstances,knowledgeofthelegalstandardcanhelpthemediatortoaddressthispowerimbalancebyincludingsomeinformationdisseminationintheprocessandclarifyingtheminimumstandardsintermsofthelaw.

Ofcourse,thesamealsoappliestheotherwayaround:

conflicttransformationapproachesandskillsarerelevantforhumanrights-focused development practitioners.


Consider the case below:

Conflicttransformationtoolstoenhancegoodgovernancereform:Indonesia

TheSupportforGoodGovernance(SfGG)projectinIndonesiaimplementedonbehalfofBMZ,jointlyimplementedbyGTZandtheStateMinistryofAdministrativeReform,aimstoimprovepublicservicedeliveryforallIndonesiancitizens.Thishasinvolvedtheparticipatorydevelopmentofarepresentativecomplaintsquestionnaire,acomplaintsurveyandjointcomplaintsanalysis.Thesemeasuresledtothedevelopmentofaservicecharterandrecommendationsforpoliticaldecision-makers.Overtime,theprocesshaschangedpowerrelationships.Citizensbecameawareoftheirentitlementsandrealisedthattheircomplaintscouldleadtoactualchanges.Basicservicesandgovernmentpracticeshavealsoimproved.Inaddition,theMinistryhasincludedcitizenparticipationandcontrolinotherpublicservices-relateddirectivesandbills.ThisprocesshashighlightedtheimportanceofbuildingtrustonallsidesandofensuringstrongfacilitationskillsamongstgovernmentalandNGOpartners,tosafeguardsustainability.Ithasalsoshownthevalueofusingfacilitateddialogueoncomplaintsasanentrypointtoimprovingservices:itreducedthefearofcriticismonthesideofserviceproviders.Bytheendof2010,conflicttransformationhadnotbeenexplicitlyconsideredinthecontextofthisproject.Yetdoingsomightstillbeusefuland/orthiswouldberelevantinotherdevelopmentprojectsofthisnature.Anyprojectinvolvingtransformationofpowerrelationsislikelytotriggerresistanceandresentmentandthoseinvolvedinimplementationneedtobeequippedtohandlethis;conflicttransformationtoolscanassistinthisregard.Forexample,mediationskillscanassistimplementersindefusingtensionsorresolvingdisputesthatmayariseinthecontextoftheproject.Theconflicttransformationfieldalsoprovidesmethodsandapproachestoenhancethesustainabilityofadialogueprocess.Finally,assessingconflictsensitivity(priortoandduringimplementation)isnecessarybecausetheprojectchallengesthestatusquo,whichmeansthatrisk-mitigationmeasuresneedtobeidentified;itwillalsohelptoidentifyunintendedconsequencesoftheproject,bothpositiveandnegative.

Thus:

Humanrights-focuseddevelopmentpractitionerscanbenefitfromconflicttransformationapproachesandskills,suchasconflictanalysis;non-violentcommunication;strategicnon-violence;facilitation,mediationandnegotiationtechniques;designandimplementationofdialogueprocessesandconflictsensitivity.

Conflicttransformationcanalsostrengthentheeffortsofactorssupportedthroughdevelopmentcooperationwhoareinvolvedinexplicithumanrightsactivitiessuchasmonitoringcompliancewithhumanrightsobligationsorhumanrightseducation(e.g.humanrightsNGOs,nationalhumanrightscommissions,ombudsman’soffices).Belowaretwobriefexamples:


ProtectinghumanrightsthroughconflictmanagementI:theDefensordelPuebloinBolivia

TheDED/CPSprogrammeinBoliviacommissionedbyBMZworkswiththeDefensoríadelPueblo(PublicProtector)tostrengthenitscapacitiesinconflictmanagement.Localleveldefensores(Protectors)areoftencalledupontointerveneinconflictsrelatedtohumanrights,astheyhavegainedmuchcredibilitythroughinvestigationofcitizens’complaintsofhumanrightsviolations.Conflictmanagement,includingcrisisinterventionandmediationofdisputes,hasthusbecomeanothermethodusedbytheDefensoríatoprotecthumanrightsbesideshandlingandinvestigatingindividualcomplaintsandfacilitatingredress.

ProtectinghumanrightsthroughconflictmanagementII:theSouthAfricanHumanRights Commission

Intheearly2000s,theSouthAfricanHumanRightsCommissionrequestedconflictmanagementtrainingforthestaffofitseducationandtrainingdepartment.Thestaffhadencounteredmuchresistanceandtensionsinhumanrightseducationevents,asmanyoftheissuescoveredwerehighlysensitiveand/orcontroversialandchallengedpeople’sstereotypesandprejudices(forexampleeducationonnon-discriminationtriggeredheateddiscussionsonracism,sexism,homophobia;corporalpunishmentofchildrenandcapitalpunishmentwerealsocontentioustopics).ThetrainingenhancedthecapacityandconfidenceoftheCommission’seducationalstafftodealwithhostilityandextremepointsofview,andtohandletensionsbetweenparticipants.Italsoenhancedtheirawarenessoftheimportanceofadoptingtrainingmethodologiesthatreflecthumanrightsprinciplesandvalues;doingsoreinforcesthehumanrightscontentsofeducationprovided.

IntheAnnex,youwillfindfurthertoolsforincorporatinginsightsfromthe‘other’field:

▪ Box 2 and Box 3helptoconceptualiselinkagesbetweenhumanrightsandconflictbyusingthemetaphorofaniceberg.Box12containsanexercisetofacilitateunderstandingoftherelationshipbetweenconflicttransformationandhumanrightsthatutilisesthisiceberg image.

▪ Box 9alistsquestionstotakeintoaccountfromahumanrightsperspectiveforpractitionersworkingonconflicttransformation.Box 9blistsquestionstoconsiderfromaconflicttransformationperspectiveforpractitionersworkingonhumanrights.

▪ Box10containsgeneralcommentsonanalysisandincludessuggestionsfor‘thinking’humanrightsintothePeaceandConflictAssessment(PCA).

4.2 Localising Human RightsDevelopmentpractitionersmustbeabletocontextualiseandlocalisethelanguageofrightssothatparticipantsofdevelopmentprogrammescanappreciatetheirrelevance.Thisisimportantingeneralterms,butalsoinlightofthefactthathumanrightsdiscourseissometimesviewed-orportrayedassuchbyelites-asalienor


imperialist.Sustainedengagementwithsuchconcernsandrootinghumanrightsinthelocalcontextthenhelpstoaddressorpreventtheperceptionofhumanrightsasanexternalinterventionwithlittlebearingondailylife,especiallyincontextswheretherealisationofsuchrightsmaybeafarcryfromday-to-dayrealities.Humanrightseducationprogrammesthatconnectwithpeople’slivedexperiencesaremorelikelytobe successful in building a strong human rights culture than those that fail to do so.

Belowaretwoexamplesoflocalisingrights,ofwhichthefirstisdrawnfromadevelopmentprojectusingaHRBA,andthesecondfromaconflicttransformation-focuseddevelopmentprogramme:

LocalisinghumanrightsI:involvingfaith-basedorganisationsinTanzania

TheTanzanian-GermanProgrammetoSupportHealth(TGPSH)hasrecognisedtheimportantroleoffaith-basedorganisationsinTanzaniainprovidingguidancetotheirmembersonlifestylesandhealth,andsupporttopoorandillpersons.Theprogramme,implementedbyGTZ,KfW,DED,CIMandInWEntonbehalfofBMZsince2003,hassupportedtrainingofMuslimreligiousleadersandreligiousschool(madrassa)teachersatdistrictandregionallevelonHIV/AIDS.IthasalsofacilitatedthedevelopmentofapolicyguideonIslamandAidsthroughconsultationmeetingsandworkshopsatdifferentlevels,includinganationalconsensus-buildingworkshop.ThetrainingguideandthepolicyguidearebasedontheideathatreligiousvaluesandculturaltraditionscanbeinterpretedandlivedinawaythatallowsforpreventionofHIVandrespectsthehumanrightsofpeoplelivingwithHIV/AIDSatthesametime.Theparticipatoryprocessfacilitatedadialogueonharmonising religious and cultural values with human rights.

LocalisinghumanrightsII:promptingreflectiononpersonalexperiencesandattitudes in Nepal

CommissionedbyBMZtheCPS/DEDrunsalargeprogrammetoaddressconflictinNepalatvariouslevels.Asapartofit,CPS/DEDstaffmembersprovidecapacity-buildinginconflicttransformationforpeoplewhodealwithconflictthemselvesortrainotherstodoso.Thosetargetedarecommunityandcourt-referredmediators,humanrightsactivists,socialworkers,journalists,socialmobilisers,andmembersofLocalPeaceCommittees.Manyofthesestakeholdersarefamiliarwithhumanrightsbuttheytendtoperceivethemassomethingtechnicalwithnoparticularbearingontheirownlife:tobepublishedonleaflets,learntbyheartandusedinpoliticaldebates.Theydonotrealisethatrespectinghumanrightsstartswiththemselves.Thisisforexamplereflectedinhumanrightsactivistsjustifyingdomesticviolenceagainstwomenwhodefysocialnorms,ormakinglow-castpeopleeatoutsideafterhavingjointlyralliedagainstcastdiscriminationatapublicevent.Hence,drawingontheexperienceoftheparticipants,CPS/DEDseekstofacilitatereflectionamongstthemontheirownroleinsocietyandtheirownbiases.Itmirrorsbackhow structural and cultural violence manifests in their own behaviour, beliefs and attitudes towardsotherpeople.

Therearevariouswaystogroundhumanrightsinthelocalcontext,relatingthemtopeople’sdailylifeandtoissuesthatmattertothem.Threeoftheseareoutlinedhere:namelyworkingwiththenotionofhumandignity,basichumanneeds,anddimensionsof human rights.


Human DignityWorkingwiththeconceptofhumandignitycanfacilitatereflectiononabusesthatpeoplemayhaveenduredandcreateaspacefordiscussiononhowindividualsandcommunitiesshouldrelatetooneanother,andonhowthestateengageswithcitizens.Thiscanlaythefoundationfortalkingabouthumanrights,therelevanceofrightsfortheprotectionofpeople’sdignity,theresponsibilityofstateandcitizens,andtheconsequencesofinsufficientrespectforhumanrights.

Basic Human NeedsThenotionofbasichumanneedscanalsobehelpfulinbuildingpeople’sunderstanding of the relevance and value of human rights for their own life, the communityandlargersociety.Needscanberelatedtorights,andcanbelinkedtoexploringbothlatentandmanifestconflictinasociety.Whenworkingwiththenotionofbasichumanneedsinthisway,oneshouldkeepinmindthatindividualsandcommunitieslivingincontextsaffectedbyviolentconflictdonotnecessarilyusethesametermswhenspeakingoftheirneedsasthoseusedinthispublication(e.g.theymayspeakof‘respect’ratherthan‘identity’or‘affection’).Itisalsoimportanttorememberthedistinctionbetweenneedsandsatisfiers:thelatterarethegoods,servicesorprocessesthatsatisfytheneeds.Often,whatisspokenaboutintermsof‘needs’language(e.g.‘weneedjobs/politicalpower/tobelistenedto/releaseofprisoners’)aresatisfiersratherthanbasichumanneeds;thisisfurthercommentedonbelow(section4.3.3.).

Dimensions of Human RightsThedimensionmodelofhumanrightsreflectsthattheprotectionandpromotionofhumanrightsisnotsolelyatechnicalaffairthatrequireslegalinstrumentsforitsimplementation(Parlevliet2009).Thetooldistinguishesbetweenfourdimensionsof human rights: human rights as rules (referring to the legal standards, i.e. formal entitlementsofrights-holdersandobligationsofduty-bearers);asstructuresandinstitutions(referringtothedivisionofpower,resourcesandopportunitiesinaspecificcontext,andtotheavailabilityofmechanismsforhandlingconflictsconstructively);asrelationships(referringtotherelationshipsandpatternsofinteractionandcommunicationthatexistvertically-betweenstateandcitizens-andhorizontally-betweenindividualsandgroups);andasprocess(referringtotheneedtointegratehumanrightsvaluesandprinciplesinconflicttransformationanddevelopmentprocessesatvariouslevelsofsociety).

TheAnnexfurtherexplainstheseoptionsforlocalisinghumanrights:

▪ Box 11providesinstructionsforanactivityonhumandignityandhumanrightsthathelpstodevelopanunderstandingofwhathumandignitymeansandhowitmaymanifestinpeople’sdailylives.ItdemonstratestherelationshipbetweenhumanrightsandhumandignityandincreasesawarenessofhumanrightsandtheUniversalDeclarationofHumanRights.

▪ Box 12containsanactivitytoclarifytheroleofbasichumanneedsinconflict.Italsohelpstofacilitateunderstandingoftherelationshipbetweenbasichumanneeds,humanrights,


andconflict,withaviewtoenhancingappreciationofhumanrightsastoolsforconflicttransformation.

▪ Box 4 and Box 13providemoreexplanationonthepublication’sunderstandingofthenotion of basic human needs, and the distinction between needs and satisfiers.

▪ Box 14aprovidesamoredetailedexplanationofthedimensionmodelofhumanrights.Box 14b illustrates working with these dimensions of human rights in the design and implementationofacomprehensiveinterventioninalocalisedconflict.

4.3 Communicating and Negotiating about Human Rights Communicationisessentialtobothhumanrightsandconflicttransformationwork.Thissectionlooksatchallengesthatmayarisewhencommunicatingabouthumanrightsandsuggestspossiblestrategiesforaddressingsuchchallenges.

4.3.1RaisingHumanRightsIssuesinaDispute/ConflictIntervention

Whosehumanrights?InterveninginconflictbetweenSouthAfricanandmigrantsquatters in South Africa

In2001,SouthAfricanslivingintwosquattercommunitiesnearCapeTownforciblyevictedpeoplewithamigrationbackgroundlivingintheirmidst.Thoseevicted(mostlyAngolansandNamibians,oftennationalisedand/ormarriedtoSouthAfricanwomen)hadlosttheirhousesandbelongingsthrougharsonandotherformsofdestruction.Manyweresubjectedtointimidationandassaultandwerethreatenedwithmoreviolenceshouldtheytrytoreturntotheinformalsettlements.TheSouthAfricanHumanRightsCommission(SAHRC)hadreceivedcomplaintsofhumanrightsviolations,submittedbythoseevicted.BoththecitycouncilandSAHRCapproachedalocalconflictresolutionorganisationto intervene in the situation and facilitate a lasting solution. When engaging with the variousparties,theintervenersfromthisorganisationfoundthattheSouthAfricansinthesquattercommunitieswereinflamedbytheaccusationofhavingcommittedhumanrightsabuses.Theyalsostronglyobjectedtoallegationsofxenophobia.Accordingtothem,theiractionswereduetocrimecommittedbythe‘foreigners’;limitedresourcesintermsofjobsandhousing;andcompetitionoverwomen.Fortheinterveners,thisraisedthequestionofhowtoraisehumanrightsissuesintheprocesswithoutalienatingtheSouthAfricanswhilealsonotdownplayingthetreatmenttowhichthesupposed‘foreigners’hadbeensubjected.TheSouthAfricansthreatenedtowalkoutofthemediationiftheviolence and destruction were going to be raised as rights issues. Yet those who had been evicted,insistedontheallegedabusesbeingexplicitlyplacedontheagendaintermsofhumanrightsviolations.Theystronglyobjectedtotheideathatsuchrightsabusesmightnotbediscussedinthemediationprocess,arguingthatthatwouldamounttofurthervictimisation.

Theexampleillustratesthechallengeofraisinghumanrightsviolationsasissuestoaconflictwhenseekingtointervene.Placingrightsissuesexplicitlyontheagendacandistancetheconflictingpartiesfromoneanotheriftheytakeaverydifferentstanceonhumanrightsandthushinderingrelationship-buildingbetweenthem.


Explicitallegationsbyonepartythattheotherpartyisresponsibleforviolationscommittedagainstthemcanescalatethesituationbymakingtheotherpartydefensiveandmoreentrenchedinitspositions.Inaddition,theintervenersruntheriskofbeinginstrumentalisedbytheparties,whooftenwantintervenerstoendorsetheirrespectiveposition.Partieswillquicklyperceiveorclaimabiasonthepartoftheintervenersiftheydonottakethespecificstancethatpartiesdesire,orapproachthesituationdifferentlythanthepartiesexpect.Yetnotincludingrightsissuesexplicitlyintheinterventionisalsoproblematicandcarriesotherrisks.Itmayunderminethelegitimacyoftheprocessandthecredibilityofintervenersandfurthervictimisepeoplewhohavebeensubjectedtohumanrightsviolations.

Thischallengingdilemmahasnoeasysolutions.Variousstrategiescanhelpinaddressingit:forexample,focusingnotonlyonthespecificviolations,butalsoonmechanismsforpreventingsimilarabusesinfuture;encouragingotheractors,outsideof the intervention, to raise rights violations so that interveners can focus on facilitating dialogueandproblem-solvingbetweentheconflictingparties.Anotherstrategyisreframinghumanrightsissuesinwaysthatincreasethelikelihoodofthembeing‘heard’,ratherthanrejectedoutright,byfocusingonunderlyinginterests(seefurtherbelow).Insum,

It is not a question of whether or not to raise human rights issues in a conflictintervention,butrather,ofhowtoraisethem,whentoraisethem,and who can best do so.

4.3.2 Encountering Resistance: Talking about Rights in Terms of Interests and Needs

Attimes,individualsworkinginpublicinstitutions–beitlocalgovernmentauthorities,thepoliceorprisons–arereluctanttoembracehumanrightsbecausetheyperceiverightsstandardsasunderminingtheirabilitytoperformtheirdutiesorascomplicatingtheirwork.Theymayalsofeelthattheirinstitutionitselfdoesnotrespecthumanrightsandfearrepercussionsiftheirviewsinthisregarddifferfromtheirinstitution’sinternalpolicy.Humanrightsadvocacycanthengenerateresistance,becausemanagementandstaffresentthechallengeposedbyhumanrightstotheirauthority,orbecausetheyfeelthreatenedbychange.Engagingwithsuchconcernsisadvisable;resistanceisusuallyasignalthatcarriesamessageaboutthesituation.Itcanpointtosomeonefeelingleftoutand/ortoconcernsthatneedtobeattendedtoinordertofacilitatemoving forward.

Insuchacontext,thedistinctionbetweencommunicatingonthebasisofpositionsorinterestsandneedsisuseful.Positionsarethedemandsthatsomeonemakesaboutwhattheywantorwhattheybelieveshouldhappen.Interestsaretheconcerns,valuesandfears,aswellasthehopesandaspirationsthatunderliesomeone’sposition.Experienceshowsthatwhenengagingwithindividualsorgroupsonhumanrights,itisimportanttofocusontheirinterestsandneedstohelpthemunderstandhowtheystandtobenefitfromrespectingotherpeople’srights,i.e.howrespectingrightscanbeultimatelyintheirowninterest.Astheexamplebelowshows,presentingrights


issuesintermsofpositions–takingastrong,prescriptivestancethatrightsmustberespectedorinstructingpeopletoconsidertheneedsandinterestsofothers–canbecounter-productive:itmayleadtostrongobjectionsorcounter-claims.

Motivating duty-bearers to comply with human rights: the South African Police Service

Since1994,muchhumanrightseducationtargetingtheSouthAfricanPoliceService(SAPS)hasfocusedonmakingthemawareofinternationalinstruments,thenationalBillofRights,andotherdomesticlegislation.Sucheducationhasattimesoftenemphasisedmorethe„what“ofhumanrights(‘humanrightsmustberespected’)ratherthanthe„why“ofhumanrights(‘thisiswhyhumanrightsareimportantandhowyoubenefitfromrespectingthem’).Insistingtothepolicethattheyhavetorespecthumanrightsmaygetthemtocomplybutdoesnotnecessarilybuildtheirunderstandingofwhythisisnecessary.Instead,rightsareperceivedasrestrictingtheirauthorityandasbenefitingsuspects.(AresearcherstudyingSAPSforanextendedperiodoftimeintheearly2000stitledherstudy“Don’tpushthisconstitutiondownmythroat!”(Hornberger2007)).However,whenmembersofthepolicearedrawnintoadialogueexploringhowtheythemselvesmaybenefitfromrightsprotection–i.e.howrespectingrightsisusefulintermsoftheirowninterests–policeofficersaremorelikelytomakeagenuineefforttocomplywithhumanrights.Thiscanincludethefollowing:respectingrightscanimprovetheirrelationshipswiththecommunitiesinwhichtheywork;itmaystrengthentheirservicedeliveryandthusenhancepublictrustinthepolice,increasingthelikelihoodofcommunitycollaborationintheireffortstofightcrime;anditmaylimitcivilclaimsagainstthepolice.Itisalsoimportanttopointouthowhumanrightsalsoprotectpoliceofficialsthemselves(intermsofeconomicandsocialrights,forexample,orfairtrialiftheyweretobearrestedforabuse.)

Thus,whencommunicatingabouthumanrights,itisusefultoassumetheclient’sperspectiveandconsidertheirinterests.Helpfulquestionstokeepinmindarethefollowing:‘What’sinitforthem?’‘Howcantheygainfromrespectingrights?’Ofcourse,thisisnottodenythattherearetimesandplaceswhenastrong,forcefulstanceonrightsmaybenecessary,forexamplewhenthereisaneedtopointoutthatcertainpracticesareillegalandassuchunacceptable.Therefore,itisimportanttoconsidercarefullywhichcommunicationandnegotiationstyleismostappropriateto engage on human rights in a given situation. (See also the section on balancing differentroles,section4.4.).

4.3.3 Negotiating Implementation of RightsThedistinctionbetweenneedsandsatisfiers,brieflymentionedabove(section4.2.),is useful when engaging with different stakeholders on human rights and their implementation.Whilebasichumanneedsarenon-negotiable,satisfiersarenegotiable:theyvarydependingonthecontextandareculturallydetermined.Multiplesatisfiersexistforeachspecificneed;thereisnoonefixedsatisfierforeachneed.Moreover,somesatisfierscanmeetseveralneedsatthesametime.Thismeansthatwhileaspecificsatisfiermayonlyaddresscertainneedsofonepartyandexcludesatisfactionofanotherparty’sneeds,itmaywellbepossibletoidentifyothersatisfiers


thatmeettheneedsofbothparties.Thenotionofmultiplesatisfiersforoneandthesameneedopensupspaceforcreativityandinnovationinproblem-solving.

Thedistinctionbetweenbasichumanneedsandsatisfiersisrelevantherebecauseasimilardistinctioncanbemadebetweenhumanrightsandthewaytheyarerealised.Likebasichumanneeds,humanrightsandfundamentalfreedomsarenon-negotiable:theyreflectinternationallyornationallyagreeduponnormsofbehaviourbetweenthestateanditscitizens,andbetweenindividualsorgroups,andtheycannotbeignoredordiscarded.Yet,likesatisfiers,themannerinwhichhumanrightsandfundamentalfreedomsareinterpretedandappliedinaspecificcontext,isnegotiable.Thisisillustratedbythefollowingexample,basedonthePhilippines:

Negotiating implementation of rights: self-determination of minorities in the Philippines

InthePhilippines,anidentitygroupthathashistoricallybeendisadvantagedinitscountryclaimstherighttoself-determination.Thestatefeltthreatenedbecauseitunderstoodthegroup’srightsclaimasademandforsecession.Fearingfortheintegrityofitsterritory,itstronglyopposedthisdemandfortherighttoself-determination.Asaresult,thelocalCPS/DEDprogrammeonthePhilippinesimplementedonbehalfofBMZhasbeenhesitanttoactivelysupportprojectsfocusingonself-determinationbecauseithasnotwantedtobeperceivedassupportingsecessionists.Instead,startingin2009,ithasassistedakeypartner,theConsortiumofBangasamoroCivilSociety,inchangingitsadvocacyfromfocusingonpositions(thedemandfortherighttoself-determination)tohighlightingtheunderlyingneedsandinterestspromptingthisdemand.TheconsortiumofBangasamoroCivilSocietynowasksitsmemberorganisationswhatthisrightmeansforthem,andalsoseekstoexplainwhatthisrightentails.Dialogueprojectshaveaccompaniedthisprocessofchangeinperspective.Thisapproachhasbeenbasedontherecognitionthattherighttoself-determinationcanberealisedinvariousways,forexamplethroughprotectionofculturalrightsoftheidentitygroup(language,religion,culture);orthroughadoptingmeasurestograntthegroupadegreeofautonomyinthegeographicalareawherethegroupisdominant.Inotherwords,secessionisonlyone,veryspecific,applicationoftherighttoself-determination,namelythemostfar-reachingwaytoimplementthatright.Itisonesatisfierforneedsofprotection,identity,freedom;othersexisttoo.Appreciationofthevariousoptionstorealiseminorityrightsprovidesafoundationformovingforwardoutofthisstalemate.Thisinterventiondidnotdirectlyaffecttheformalpeacetalksbetweenthepartiesbuthasindirectlysupportedthembyenhancingcivilsociety’sawarenessoftheunderlyingneedsbehindtheRSDclaim.Recentdevelopmentsintheformaltalksreflecttherelevanceofthisapproachasthepartieshaveagreedonamoreflexibleinterpretationoftherighttoself-determination.(TheMoroIslamicLiberationFrontnowstressesinitsdrafttextthattheydonotaimatsecessionbutataspecialautonomystatusthatwillenablethemtoimplementpoliticalmeasurestofulfilltheirrighttoself-determination.)Thishasopenedthepathforfurtherdiscussionoftheotherissuesbetweenthem.

Theaboveexampleillustratesthatwhennegotiationsbetweenpartiesgetstuckoveraspecificsolutiontotherightsissuesbetweenthem,developmentpractitionersconcernedwithhumanrightsandconflicttransformationcanplayausefulroleby


creatingspacetoexploretherangeofpossibilitiesforrealisingparticular

connecting human rights and conflict · giz & zfd & dimr – connecting human rights and conflict...

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