local peacebuilding summary report june 2019 what works ... · although the global peace index...

Local peacebuilding What works and why

Summary ReportJune 2019

ii | Local peacebuilding: What works and why Local peacebuilding: What works and why | iii

Local peacebuilding: What works and why | iii

DRC DemocraticRepublicofCongo

DM&E Design,MonitoringandEvaluation

NGO Non-governmentalorganization

SDG SustainableDevelopmentGoals

UN UnitedNations

This is a summary version of a longer report which is available online at: https://www.peaceinsight.org/reports/whatworks

ThisresearchwasconductedandthefinalreportwrittenbyPhilVernonundertheguidanceofasteeringgroupconsistingofJessicaBaumgardner-Zuzik,ElizabethHume,DylanMathews,BridgetMoixand SarahPhillips.TheresearchbenefitedfromsupportbyMohamedIsmail,VaheMirikianandShaziyaNetto,andwewouldalsoliketothankKenBarlowforeditorialsupport.Theauthorretainsfinalresponsibilityforallerrorsoffactorjudgement.Weacknowledgeandthankalltheorganizationswhocontributedsourcedocuments,andparticularlythosewhokindlyagreedtotheinclusionofreferencestotheirworkinthetext.

ThisreportwouldnothavebeenpossiblewithoutgenerousfinancialsupportfromMiltLauenstein.

Abbreviations

Acknowledgements

iv | Local peacebuilding: What works and why Local peacebuilding: What works and why | 1

AlthoughtheGlobalPeaceIndexrecordedthefirstincreaseinglobalpeacefulnessinfiveyearsin2019,thefactsonthegroundinmanycountriesspeaktoadifferentreality;onewherecommunitiesarebeingtornapartbyviolencethatwasbothavoidableand,inmanycases,predictable.Inthepastmonth,continuedviolenceincentralMalithreatenstospiraloutofcontrol,withthelatestattackresultinginthedeathsofscoresofpeople.InMay,theUNestimatesthat300,000peoplefledtheviolenceinIturiprovinceinDRC,hamperingtheongoingEbolaresponseefforts.AndinSriLanka,theEasterSundayterroristattackshaveledtoaseriesofretaliationsagainstMuslimcommunitiesacrossthecountry,withover1,000MuslimrefugeesoriginallyfromPakistan,IranandAfghanistanfleeingjustonetown.Allthewhiletheglobalnumberofrefugeescontinuesgrowingtounprecedentedlevelsaspeoplefleeviolentconflict.

Whatlinkstheexamplesabove,andmanyothercountriesexperiencingviolencerightnow,istheproliferationofopportunitiestobuildpeacethatareroutinelybeingoverlookedbytheinternationalcommunity.Whilehighlevelnegotiationsdooftenstall,therearecountlessopportunitiestosupportbottomuppeacebuildinginsomeofthemostviolentcontextsrightnow.Localpeacebuildingactorsareprotectingvulnerablepeople,resolvinglocaldisputes,preventingdisplacementsandsavinglives.

AtPeaceDirectwehavebeendedicatedtosupportingandstrengtheninglocalcapacitiesforpeacesinceourfoundingoverfifteenyearsago.Thepremiseunderpinningourworkisthatlocalpeopleworkingtostopviolenceandbuildpeaceintheircommunitiesremainthegreatestsourcesofuntappedpeacebuildingpotentialglobally.Whiletherhetoricaroundsupportinglocalpeacebuildingeffortsisslowlychanging,internationalandnationalpoliciesandpracticearenotkeepingup.Acombinationofbureaucraticinefficiency,systemicinertia,riskaversion,concernsaboutscale,capacity,

effectivenessandimpact,andalackofcontextualunderstandingstillhamperseffortstoprovidetimely,flexiblesupporttolocalpeacebuildingefforts.Inaddition,existingpolicycommitmentsattheUNlevelhavenotyetbeenoperationalized.

Thisreport,ajointcollaborationbetweenPeaceDirectandtheAllianceforPeacebuilding,aimstoaddressoneofthequestionsweoftenhearfrompolicymakersanddonorsaroundtheeffectivenessoflocalpeacebuildingefforts.Ifconcernsabouttheeffectivenessoflocaleffortsisoneofthereasonsforthelackofinvestmentbygovernmentsandmultilateralinstitutions,wehopethatouranalysisofover70evaluationscollectedfromadiverserangeoforganizationsandcontextsacrosstheworldwillhelpstrengthenthecaseforsupport.Theexamplesinthisreportandtheaccompanyingwebsitenotonlyspeakofremarkableheroism;theydemonstratetangibleimpactsonthegroundinplaceswhereviolenceisoftendismissedasendemic.FromreducingviolentconflictinSudanandeasternDRCongotoprotectingvillagesfromattackinColombia,thesestorieshighlightwhatispossible,eveninplaceswherenationallevelpeaceprocesseshavestalled.

ThisyearattheUNHighLevelPoliticalForuminNewYork,memberstateswillreviewprogressmadetowardsSDG16.WebelievethatSDG16cannotbeachievedwithoutgreaterlevelsofparticipationbyandsupportforlocalpeacebuildingefforts.Localizationisnowaprominentthemewithinthehumanitariansector.Let’sstarttalkingaboutlocalizingpeaceandinvestinginitnow.

Dylan MathewsCEOPeaceDirect

Preface

Local peacebuilding: What works and why | 1

The full version of this report can be found at: www.peaceinsight.org/reports/whatworks

Abbreviations ii

Acknowledgements ii

Preface iii

1 Introduction 2

2 Local peacebuilding impact 4

3 What helps local peacebuilding succeed? 8

4 Challenges 12

5 Areas and mechanisms for support 14

6 Recommendations 18

Contents

2 | Local peacebuilding: What works and why Local peacebuilding: What works and why | 3

1. Introducti onDespite an increased commitment to peacebuilding on the part of donors and other internati onal organizati ons, the world has become more violent in the past decade.1 Furthermore, while meeti ng Sustainable Development Goal (SDG) 16 is recognized as crucial to achieving all SDGs,2 progress has been disappointi ng, and is currently under review.3


AstheUNSecurityCouncilhasmadeclear,whilepeacebuildingcanandmustbesupportedbyinternationalefforts,peaceisonlydurablewhenitislocallybuilt,ownedandsustained.4

Local peacebuilding–actionsinitiated,ledandimplementedbypeopleinandfromtheirowncontext,bothatthegrassrootsandnationally–isthereforeessential.Yetlocalpeacebuildersaretoooftenstarvedofsupport.Theirpoliticalleaderscanbeunsupportive,meaninginternationalhelpiscrucial.Internationaldonorsandorganizations,however,areoftenunwillingorunabletostepin.Thiscanbeduetoriskaversion,prejudiceandoperationalconstraints,asdoesanunwarrantedscepticismthatlocalactionshavetherequisitedepth,scopeandscaleofimpacttoreduceviolenceandshiftsocietiesfromfragilitytoresilience.

Evenso,localpeacebuildershavedemonstratedasignificantimpactonpeace.Thisreportthereforearguesthattheinternationalcommunitymustgivethemmoresupport.

Local peacebuildingLocalpeacebuildinginthisreportreferstopeacebuildinginitiativesownedandledbypeopleintheirowncontext.Itincludessmall-scalegrassrootsinitiatives,aswellasactivitiesundertakenonawiderscale.

PeaceDirectdistinguishesbetweeninitiativesthatare(1)locallyledandowned,wherelocalpeopleandgroupsdesigntheapproachandsetpriorities,whileoutsidersassistwithresources;(2)locallymanaged,wheretheapproachcomesfromtheoutside,butis“transplanted”tolocalmanagement;or(3)locallyimplemented,primarilyanoutsideapproach,includingexternalprioritiesthatlocalpeopleororganizationsaresupposedtoimplement.

1 InstituteforEconomics&Peace,‘GlobalPeaceIndex2018:MeasuringPeaceinaComplexWorld’,June2018.Availablefrom:http://visionofhumanity.org/reports2 PathfindersforPeacefulandJustandInclusiveSocieties,‘TheRoadmapforPeaceful,JustandInclusiveSocieties:ACalltoActiontoChangeOurWorld’,Centeron

InternationalCooperation,2017.Availablefrom:https://cic.nyu.edu/programs/sdg16plus3 UNSustainableDevelopmentGoalsKnowledgePlatform.See:https://sustainabledevelopment.un.org/sdg164 UNSecurityCouncilResolution2282(2016),SustainingPeace.5 Thefullreport,ofwhichthisisasummary,canbedownloadedathttps://www.peaceinsight.org/reports/whatworks

Locally led & owned

Locally managed

More local ownership Less local ownership

Locally implemented

Basedonanexaminationofover70externalevaluationsoflocalinitiatives,thereporthighlightsandanalysestheirconsiderablesuccessinthree domains of impact:5

• Preventing,reducingorstoppingviolence;

• Improvingrelationshipsbetweenandamongpeopleandpeoples(i.e.‘horizontalrelationships’);

• Improvingrelationshipsbetweenpeopleandthosewhogovernthem(‘verticalrelationships’).

Thereportfurtherdividestheseimpactsinto three ever-deepening levels of change: Knowledgeandattitudes,behavior,andstructures(i.e.norms,systems,institutions)(illustratedinFigure2onpage8).


Three clusters of peacebuilding approaches emergedfromtheevaluationsstudied:

• Community-basedpeaceinitiatives;

• Initiativesledbyorengagingwith specificgroups,suchaswomen, youthandtraumatizedpeople;

• Initiativesthatadvocateimproved nationalpoliciesanddiscourse,and early-warningnetworks.

Thesustainableimpactsonpeaceoftheseapproachesareexploredandanalysed,forming thebasisforpracticalrecommendationsaimed atdonors,multilateralorganizationsandinternationalNGOs.

Sustainable Development Goal (SDG) 16Promotepeacefulandinclusivesocietiesforsustainabledevelopment,provideaccesstojusticeforall,andbuildeffective,accountableandinclusiveinstitutionsatalllevels

SDG 16 peace targetSignificantlyreduceallformsofviolenceandrelateddeathrateseverywhere:

Lesshomicides,conflict-relateddeaths,peoplesubjectedtophysical,psychologicalorsexualviolence,andmorepeoplethatfeelsafewalkingalonewheretheylive

2018 UN report on progress‘Manyregionsoftheworldcontinuetosufferuntoldhorrorsasaresultofarmedconflictorotherformsofviolencethatoccurwithinsocietiesandatthedomesticlevel’

LaAsociacióndeTrabajadoresCampesinosdelCarare


UNIFEM


2. Local peacebuilding impactThe peacebuilding initi ati ves reviewed for this report demonstrate the ways in which local initi ati ves have improved the knowledge, atti tudes and behaviors, as well as the norms and structures, on which peace is built (see Figure 2). The full version of this report contains an analysis of the three disti nct clusters of peacebuilding approaches that emerged from the available evaluati ons.

UNWomen


Community-based initiativesareparticularlyeffectiveinsituationsofpersistent,chronicconflictstakingplaceinthewidercontext.Suchinitiativespreventlocaldisputesfromescalating,improvelocalgovernance,improverepresentativedecision-making,giveexcludedpeopleavoice,andimproverelationshipsandcommunicationwithinandbetweencommunities.

Initiatives led by or engaging with specific groups alsohaveconsiderableimpact.Locallyappropriatetrauma-healingtechniquesimproveindividuals’andcommunities’well-being,andimprovepeacefulco-existenceandsocialcohesion.Otherinitiativeshelpwomenandyoungpeoplegaingreatervoiceandagency,andhelppreventyoungpeoplefrombeingdrawnintoextremistorpoliticalviolence.

National advocacy campaignsshapesocietaldiscoursetowardsbeingmoreconduciveforpeace,aswellaspersuadinggovernmentstoadoptpolicies

Figure 1. Proportions of initiatives reviewed for this report, per the scale of impact achieved

andgovernanceapproachesthatenhancestability.Early-warningnetworks,meanwhile,reducelevelsofviolenceandpreventedpeoplefromharm.

Figure1illustratesthattheinitiativesstudiedhadanimpactatalllevels,fromtheindividualuptonationalandeveninternationallevel.

Thedatasetusedforthereportwasnotcomprehensive,nordoanyoftheinitiativesreviewedclaimtohavefulfilledontheirownthetaskofbuildingpeace.Nevertheless,Figure2illustratesthatlocalinitiativeshavemadeeffectivecontributionstoreducingviolence,aswellasstrengtheningthesustainablecapacityoftheirsocietiestominimizeandmanageconflicts.Itisstrikingthattheyhaveachievedsuccessnotonlyinchangingpeople’sknowledge,attitudesandactionsintheshortterm,butalsointhefarhardertaskofchangingthenormsandstructuresthatshapepeople’sbehaviorsoverthelongterm.

1%International

23%Individual/household

35%Local community

14%District

12%State/province

15%National


Figure 2. Local peacebuilding impacts identified in this research, in three levels of change and three domains of impact

Violence prevented, reduced or stopped

Horizontal relationships between and among people and peoples improved

Vertical relationships between people and those with authority and power improved

Changes in knowledge and attitudes Changes in behavior

Structural changes (norms, systems, institutions)

Improved optimism regarding and knowledge of peaceful approaches to addressing conflict

Opinion-formers better understand how their words can shape peace or conflict

Increased readiness to accept ex-fighters, refugees and others back into community

Local disputes resolved

Mediation between conflict parties prevents fighting

Opinion-formers take more care with their words and actions

Early-warning and response mechanisms prevent violence

Youth less vulnerable to recruitment for violence

Communities safer

Armed groups follow violence-reduction mechanisms

Women, young people and others proactively advocate non-violence

Gender-based violence taken more seriously in courts

Improved empathy for the views and problems faced by ‘others’

Increased trust, tolerance and forgiveness

Improved understanding of underlying reasons for conflict

Improved attitudes towards/reduced alienation from society

Proactive peace actions by ethnic, religious and community leaders to improve ties and cohesion

People actively build practical links and improved relations with ‘other’ groups

Mutual support actions

Reintegration of returning refugees

Increased commitment to using non-violent conflict-resolution mechanisms

Practical solutions to conflicts achieved through dialogue

Intra- and inter-community bodies petitioned to help solve disputes and build peace; some expand their geographic and sectoral mandate

Better understanding between authorities and citizens of how to collaborate practically

Improved mutual understanding between authorities and citizens on conflictual issues

Dialogue and other participation mechanisms allow authorities to listen and consult readily

Problems and relations with security services and armed groups resolved

People engage more in ‘civic’ activities

Increased voting rates

New governance approaches for conflict-resolution and policy adopted by communities, and local and national government

Community-based peace initiatives and mechanisms integrate women, young people and minorities into decision-making

More women achieve office

Improved popular participation in decision-making and accountability

Governments adopt pro-peace policies


GregFunnell


3. What helps local peacebuilding succeed?The report reviewed a variety of initi ati ves from diverse contexts. Based on these, the following conclusions about the qualiti es of successful local peacebuilding initi ati ves can be drawn.

GreggFunnell


Cumulative impactFromtheevidencereviewed,itisclearthatsmall-scalepeacebuildinginterventionscanhaveacumulativeimpact,especiallywhentheypersistoveralongtime,expandthescopeoftheiractions,wherethereisaclusteringeffect,orwheninitiativeslinkuptogether.Forexample,apeasants’associationinColombiaimprovedthesecurityoflocalcommunitiesoveraperiodoftwodecadeswhentheynegotiatedasetofrulesthattheirmembersandallarmedgroupslocallyagreedtofollow.6

Otherinitiativeshadknock-oneffectsbeyondtheirinitialaims,improving,forexample,inclusionandgovernance.Somecommunity-basedinitiativesgrewinscopeorscale,whileseveralexpandedtheirmandatetoinclude,forexample,awider‘developmental’role.

Othersexpandedgeographically,sometimesattherequestofneighbouringcommunities.Whilefewoftheevaluationsexplicitlyorthoroughlyexaminetheeffectofclustering,somedidfindevidenceofthis.Forexample,thecombinedimpactoflocalpeacestructuresinareasofSouthKivuintheDRCwasfoundtobegreaterthanthesumoftheirparts.7Finally,theexamplesoftheDushirehamwewomen’speacebuildingnetworkandtheCollectifdesAssociationsetONGsFémininesauBurundiinBurundi,andoftheBoendoeearly-warningnetworkelsewhere,illustratethebenefitsofformalcollaborationamonglocalpeacebuilders,basedonasharedgoal.Intheformercase,activistssuccessfullyadvocatedforchangestogovernmentpolicies,andinthelatter,theirabilitytopreventlocalviolencewasenhancedthroughmutualsolidarity.8

Cost-effectivenessLocalinitiativesuselow-cost,technicallyappropriateapproaches.Localentitiesare,bytheirnature,lesscostlythaninternationalbodies.Notonlythis,theytapintolocalvolunteerismandemploytechniques–suchasthenon-clinicalpsychosocialmethodsusedbytheNGOTreeofLifeZimbabwe,9orthecommunity-basedstructureestablishedinmanycountries–thatarerealisticallyreplicableinaconstrainedbudgetenvironment,andarethusscalable.

Practical orientationLocalinitiativestendtoapplypracticalapproachestoaddressingissues,ratherthanframingactionintermsofhigherlevelconceptssuchas‘stability’and‘inclusion’,asisoftenthecasewithinternationaltheoriesofchange.Whilethiswasnotexplicitlytestedintheevaluationsconsideredforthisreport,itisreasonabletospeculatethatthisfocusonpracticalactionisoneofthereasonspeoplesupportandparticipateinlocalinitiatives.Forexample,aninitiativebyagroupofNGOsinBurundiestablishedhighlypracticalapproachestoengageyoungpeopleincivicaction,ratherthanelectoralviolence.10

6 OliverKaplan,‘ProtectingCiviliansinCivilWar:TheInstitutionoftheATCCinColombia’,JournalofPeaceResearch(2003)50(3):351–67.7 AllanaPoole,‘BarazaJustice:ACaseStudyofCommunity-LedConflictResolutionintheD.R.Congo’,PeaceDirect,2014.8 KielyBarnard-Webster,‘”StrengthIsFromAUnion;WorkingTogetherYouGoFar”:UnderstandingCollectiveImpactUsinganAnalyticFramework’,CDA,2018;Francois

Lenfant,‘MakingWomen’sVoicesHeardinPeacebuildingandReconciliationinBurundi’,InternationalAlert,2013.9 TreeofLifeandMutokoTeam,andCraigHigson-Smith,‘HealthyPeopleandHealthyCommunitiesinZimbabwe’,TreeofLifeTrustZimbabwe;AndrewIliff,‘TreeofLife:

SowingtheSeedsofGrassrootsTransitionalJustice’,AfricanArgumentsblogpost,11March2010.Availablefrom:https://africanarguments.org/2010/03/11/root-and-branch-tree-of-life-sowing-the-seeds-of-grassroots-transitional-justice/;TonyReeler,KudakwasheChitsike,FungisaiMaizvaandBeverleyReeler,‘TheTreeofLife:ACommunityApproachtoEmpoweringandHealingSurvivorsofTortureinZimbabwe’,Torture(2009)19(3):180–93.

10 AlejandraBernardoAndrés,‘YouthInspired:TodayandTomorrowandIntamenwa(Indivisibles):MobilizingYouthforPeacefulElections’,ProgressEvaluation,SearchforCommonGround,December2014.

GreggFunnell


RelevanceLocalinitiativesareseenasrelevantbylocalstakeholders,allowingthemtoachievehighlevelsofparticipationandsupport.Mostevaluationsfoundtheactivitiesunderexaminationwerebothrelevantontheirownterms,andweredeemedrelevantbylocalactors.Thiswasparticularlytrueofgrassrootsinitiatives,andofinitiativesconductedbyandwithparticulartargetgroups.Suchinitiativeswereabletotapintocommunitysupport,especiallyfromthepeoplewhoseintereststheyrepresented.Therelevanceofadvocacywasdemonstratedbytherelativelyrapiduptakeofmanyadvocacyproposals.Similarly,therelevanceofdialoguewasdemonstratedbythereadyadoptionofdialogueoutcomes.

Theresearchalsofoundthatlocalpeacebuildingisrelevantthroughouttheconflictcycle.Forexample,localpeacebuilderspreventedoutbreaksofviolenceinBurundi;reducedlevelsofviolenceinsituationsofchronicconflictsuchasColombiaandSudan;andenabledcommunitiestorecoverfromconflict,aswellasbuildfutureresilience,inSierraLeoneandRwanda.

Local knowledgeLocalpeacebuilders’contextualknowledgeandnetworksallowthemtomobilizethecourage,leadershipandcapabilitiesthatexistinpotentialwithinsociety.Forexample,whenSouthSudanesewomenwereempoweredbynewpeacebuildingknowledgeandskills,andbytheirparticipationinlocalpeacecommittees,theytooktheinitiativeinconvincingyoungmenincattlecampstorefrainfromviolencetowardsotherethnicgroups.11Manyoftheinitiativesreviewedforthisreportalsoshowedevidenceofrapidadaptability,especiallygrassroots,community-basedactions.Thisstemmedfromtheirresponsivenesstolocalstakeholders,aswellasperhapsalackofbureaucraticrestrictionswhencomparedwithinternationalprojects.

Working with the grain, to change the grainLocalinitiativesmobilizelatentpopularenergyinsupportofbehavioralandstructuralchange.Manyevaluationsnotedthehighlevelofsupportforchangeamongcitizensandleadershipfigures.Thepotentialofpeopletocontributetopeacebuildingisoftenuntapped,andlocalinitiativescanprovidethemwithsuchopportunities,particularlywithregardtowomenandyoungpeople.Accordingtoseveralevaluations,localleaderswerealsomobilizedtoparticipateinnewapproachestopeacebuilding,suggestingthatlocalinitiativescaninspireandcreateopportunitiesevenforthoseinpositionsofpowerwithinthestatusquo.

Inotherwords,whilelocalinitiativesengagewithandbuildonexistingnormsandmechanisms,theycanalsochangethese,forexamplewhenpartneringwiththeSomalilandgovernmenttohelpdevelopnewpro-peacepolicies,orcollaboratingwithcommunitychiefsongrassrootsinitiativesintheDRC.Thereisalwaysariskinsuchcircumstancesthattheircollaborators,andthenormsandsystemstheyrepresent,willobstructchange.However,localpeacebuildersappearwell-placed‘toworkwithgrain,tochangethegrain’–thatis,tobringtheseactorswiththemaschampionsofchange.Thisisevidencedbythewidespreadacceptanceofwomenandminoritiesincommunity-basedpeaceinitiatives,ofteninapparentlyconservativeruralareas,andbythewillingnessofthoseinpowertoexplorenew,alternativegovernancemechanisms.

11 ‘Portals2PeaceandNationalActionPlanEvaluationreport,2019’,AssistanceMissionforAfricaandPAX,2019.


12 ‘Portals2PeaceandNationalActionPlanEvaluationreport,2019’,AssistanceMissionforAfricaandPAX,2019.

ConnectionsLocalinitiativesreflectthebreadthandinterconnectednessofpeaceandconflictfactors.Peacebuildingtheorytellsusthatpeacecanbebuiltandsustainedthroughimprovementsacrossabroadrangeofissues,andlocalpeaceinitiativesconfirmthis.Fromtheexamplesreviewed,itisclearthatlocalpeacebuildersattributepeacetoawidevarietyoffactors,includingpersonalandcommunitysecurity,accesstoeconomicopportunity,improvedgovernanceandjustice,andsocialwell-being.

Restoring trustRelationsandtrustwithinandbetweencommunitiescanbereadilyimprovedbylocalinitiatives.Thisisillustratedbytheimpactofcommunity-basedinitiativesinpost-warSierraLeone,aswellasinSouthSudan,betweenDinkaandNuergroups.12Thissuggeststhattrustisalatentpublicgood,andthatlocalactorsarewell-placedtobringitbacktothesurfacewhencircumstancesallow.

UNAMID


4. ChallengesBased on the evaluati ons reviewed for this report, there is plenty of evidence that local peacebuilding can achieve impact in terms of the goals established by the initi ati ves themselves, and of its relevance to accepted peacebuilding frameworks.


Anyformofpeacebuildinghasitslimits,however,andlocalinitiativesdonotalwaysfullysucceed.Somearepoorlyconceivedorexecuted,whileothersareunderminedbyexternalcircumstances.Severalevaluationssoundednotesofcaution,withonesimplystatingthattheinitiativeinquestionhadfailedbecausetheorganizationhadoverreacheditself.

Evenapproachesthatdoworkmaynotsucceedineverycase.Forexample,noteveryonesufferingfrompost-traumaticstressinRwandacanexpecttobehealed.13InanotherexamplefromSierraLeone,whilereconciliationwassuccessfulatacommunitylevel,itappearedtobeassociatedwithincreasedanxietyanddepressionforsomeindividuals,suggestingthattheprocesshadstirredupfeelingsthathadnotbeenaddressed.14Thisisareminderoftheneedforregularevaluationsinordertoidentifychallengesasearlyaspossible,andtechnicalsupporttomeetchallengeswhentheyareidentified.

Somecommunity-basedpeaceinitiativesareunderminedbylocalleaderswhofeartheirstatusandincomeatrisk,orbyspoilerswhoseinterestsareill-servedbystability.Meanwhile,someinitiativesriskbeinginstrumentalizedandco-optedforpoliticalgain.15

Therelianceonvolunteerismisadouble-edgedsword.Ontheonehanditensuresownershipandlocalknowledge,whileontheotheritpotentiallyexcludesthosewholackthetimeorresourcestogetinvolved.DialogueprocessesinUkraineprovidedanexampleofinadvertentexclusion,withdialogueorganisersunabletoinvolvepeoplewithextremeviews.16Elsewhere,attemptsatinclusionwereresistedduetopatriarchalattitudesorprejudiceagainstminorities.

Wheninitiativesgiverisetonewbodies–newcommunity-basedpeacestructures,forexample–theserisksupplantingexistinggovernancemechanisms,weakeningthelatter’sabilitytopursuepeace.17Thewillingnessofcitizenstogetinvolvedshouldnotbeanexcusefortheauthoritiestodisengage.

Finally,incommonwithothersocialchangeactivists,localpeacebuildersarenotalwaysabletoconvertattitudinalandknowledgechangeintonewbehaviorsandpractices.Forexample,54%ofparticipantsinasurveyinSierraLeonefeltthat,whiletheyhadlearnedabouthowtocoexistpeacefully,theyhadyettoconsciouslydrawonitininformingtheirownrelationships.18Otherinitiativesfoundintolerancehardertoshiftthanhadbeenhoped,19orthatthecynicismofeliteleaderswashighlyresilienttoadvocacy.20Structuralobstaclestopeaceoftenneedtobeaddressedovermanyyearsbeforetheybegintoshift–areminderoftheneedtoinvestinpeacebuildingoverasustainedperiodinorderforchangetobefullyembedded.

Thesechallengesdonotunderminetheimportanceoflocalpeacebuilding,butmerelyunderlinetheneedforlocalpeacebuilderstoensuretheymatchtheirambitionswithappropriateresourcesandcapacity,andemployeffectivemonitoringandevaluation.Giventhatmonitoringandevaluationapproachesarestillbeingexploredinthepeacebuildingsectorasawhole,thisisapotentialareaforexternalsupportandcollaboration.

13 StacyHilliard,EugeneNtagandaandKatieBartholomew,‘SocietalHealing&ParticipatoryGovernance:Mid-TermEvaluation’,TayshaConsulting,March2017.14 JacobusCilliers,OeindrillaDubaandBilalSiddiqui,‘CantheRuinsofWarbeHealed?ExperimentalEvidencefromSierraLeone’,ImpactEvaluationReport75,

InternationalInitiativeforImpactEvaluation,May2018.15 MarkM.RogersandDrHippolytPul,‘LearningFromandAboutLocalPeaceGroups:ThematicEvaluationReport’,ConciliationResources.16 TatianaKyselova,‘UnderstandingDialogueinUkraine:ASurvey-BasedStudy,AnalyticalReport2018’,MediationandDialogueResearchCenter,Kyiv,2018.17 MarkM.RogersandDrHippolytPul,‘LearningFromandAboutLocalPeaceGroups:ThematicEvaluationReport’,ConciliationResources.18 MohammedAbu-NimerandSusanShepler,‘FambulTokProgramEvaluation’,FambulTokInternational,April2015.19 AsfinawatidanTatiKrisnawaty,‘FacilitatingFreedomofReligionandBelief:EvaluationReportofTheAFSCProgramPeriodof2013–2015’,AmericanFriends’Service

Committee,2016.20 AnnetteEnglert,‘ConsultancyontheEvaluationoftheINTERPEACEVozdiPazProgrammeinGuinea-Bissau(2009–2010)’,June2011.


5. Areas and mechanisms for supportFour potenti al areas of external support can be identi fi ed based on the evaluati ons surveyed for this report: Increased support in situati ons of chronic violence, scaling up, sustainability and evaluati on. This has implicati ons for which models of support are appropriate.


Increased support to local initiatives in situations of chronic violenceHowshouldweconsiderlocalinitiativesthat,althoughsuccessfulontheirownterms,arevulnerabletodeteriorationinthewidercontext?DoesthefactthattheDRC,forexample,remainsdeeplyaffectedbychronicandviolentpoliticalconflictsunderminetheimportanceoflocalinitiativesthere?Suchinitiativescannot,afterall,beexpectedbringsuchconflictstoanendintheshortterm.

Theresearchreviewedsuggeststhatlocalinitiativesremainimportant,andmaybeevenmoreimportantwherehigherlevelorwiderconflictspersist.Theyhavedemonstrablyimprovedpeople’saccesstopeaceincountriessuchasBurundi,DRC,Myanmar,SouthSudanandSudan,evenwhilewiderconflictsremainunresolved.Suchconflictsmaytakemanyyearstoresolve,andmayrecurevenafterformalpeaceagreementsandsettlementshavebeenachieved.Theabilitytostoporpreventviolence,therefore,andimproverelationsbetweenandamongpeople,andbetweenpeopleandthoseinpower,remainscritical.Thisimpliesincreasedsupportforlocalinitiativesisneededinsuchcontexts.

Scaling upNevertheless,theimpactsoflocalpeacebuildinginitiativescansometimesseemisolated,andtheyriskbeingoverwhelmedbyexternaldynamics.Whilethisisnotareasontodismissthem,itdoessuggesttheneedforscalingupwherepossible.Theevaluationssurveyedidentifyseveralwayslocalinitiativeshavedonethis,forexamplebyformalandinformalnetworking,orexpandingtheirmandateorscale.InBurundi,somecommunitypeacestructuresnetworkedwithothersinnearbycommunities,whileothersexpandedtheirgeographicreach.21 InSudan,localpeacecommitteestookonawider,developmentalmandate,designedtoaddresscertainunderlyingcausesofconflict.22

Manyevaluations,though,identifyunexploitedscale-upopportunities,particularlyopportunitiesforsynergybetweendifferentinitiatives.Evenso,itwouldbeamistaketoassumethatalllocalinitiativeshavethecapacitytoexpandorreachouttoothers.Anyattemptatscalingupshouldbebasedonaclear-eyedassessmentofcapacityandopportunity,anddrivenbytheorganizationsorcommunitiesthemselves,ratherthanbyexternaldemands.Nevertheless,opportunitiesforlinkingandscalinguppeacebuildingactionsandimpactsmeritfurtherexploration.Thisispotentiallyanareawherecarefulexternalsupportcouldhelplocalinitiativesincreasethescopeanddepthoftheirimpact.

21 MichelleSpearing,‘AddressingStateFragilityfromtheBottomUpThroughInclusiveCommunityGovernance:ExploringTheoriesofChange’,CARENederland,2016.22 GumaKundaKomey,‘EvaluationoftheProcess,OutcomesandImpactoftheCfPS-RRFandPCsinLocalPeace-buildingandConflictResolutionsinSouthandWest

Kordofan,Sudan’,PeaceDirect,2017.


SustainabilityTheresearchconductedforthisreportwasunabletoassesstheongoingsustainabilityoflocalinitiativesbeyondthetimeframeinwhichtheywereevaluated.Whilemanyarereportedasalreadybecomingembeddedinlocalbehaviorsandstructures,anumberofevaluationreportsrecommendfurthereffortstoimprovesustainability.Convertingknowledgeandattitudinalchangeintobehavioralchangeisnotagiven,andconvertingbehavioralchangeintonewnormsandstructurescanbeevenmoreofachallenge.Thereisthereforeaneedtosustainlocalinitiativeslongenoughfortheirimpactstobecomefirmlyembedded–forseveralyears,atleast.

The evaluation deficitThisreportidentifiedsuccessfulexamplesoflocalpeacebuildingbasedonadatasetofevaluationssubmittedinresponsetoacallthatwassentoutinEnglish,primarilytoformalpeacebuildingorganizations.ThiswassupplementedbyinternetsearchesandthroughexistingDM&Edatabases.Whilethisestablishedadatasetsufficientfortheresearch,italsoexposedgapsinreadilyavailableevaluationdata.Thereappearstobeadeficitofindependent,objectiveevaluationsoflocalpeacebuildingimpact,andespeciallyofeffortsthat:

• Contributetostabilizationandsustainablepeaceataprovincialornationallevel;

• Areunconnectedtonationalorinternationalprogrammes;

• Areinformalinnature,i.e.notimplementedbyorganizationsassuch;

• Aredefinedintermsotherthanpeacebuilding,yethavehadasignificantimpactonpeace;

• Arecontinuedoveralongperiodoftimeandthusprovideanopportunitytoevaluatetheirsustainability.

Furthermore,theevaluationsreviewedtendtostopatthelimitsoftheactionsunderreview,andseldomaskwiderquestionsabouttheinfluenceoftheinitiativeonpeacewritlarge,i.e.peaceonawider,societalscale.Askingthisquestioninevaluationswouldnotonlyallowreviewerstoexplorethewiderimpactsofaspecificlocalinitiative,itwouldalsohelphighlightopportunitiesforsynergyandscalingup.

Partnership and support modelsWhilethisreportisnotspecificallyfocusedonmodelsofsupportforlocalinitiatives,severaloftheevaluationsrevieweddiscussthis.Indeed,manyoftheevaluationswerecommissionedbyinternationalagenciesasaresultoftheirsupporttolocalorganizations.23Inafewcases,thelocalorganizationshadthemselvesbeenestablishedby,oremergedfrom,programmesrunbyinternationalNGOs.Thesewereconsideredeligibleforthereport,providedtheyhadsubsistedindependentlyforanumberofyears,andwerelocallyled.

Broadly,theevaluationscontaintwomainfindingsaboutsupportmodels.Thefirstisthatthecombinationoflocalandinternationalhasmuchtorecommendit.Partnersareabletoblendlocalknowledge,capacityandinterestswithskillsandknowledgegainedfromotherconflictzones,andinternationalsarealsoabletosecurefinancialresources.Thesecondisthat,insomecases,localvoicesarebeingdrownedoutinplanningandreporting,unabletotaketheinitiativeastheyshould.Theevaluationsrecommendmoreequalpartnershipstopreventthisformofdisempowerment.

Itisalsoworthrepeatingthatevaluationscommissionedbyinternationalprogrammesoftenfailtodifferentiatetheimpactsorrolesoflocalpartnersfromthoseoftheirinternationalcollaborators.Evenwhentheydo,manyfailtoclarifytheextenttowhichtheformerareingenuineleadershippositions,devisingtheirowninitiativesratherthanmerelyimplementingothers’priorities.Internationalorganizationshaveanincentivetopresentoutcomesandimpactsastheirs,evenwhentheyshouldrightlybeattributedtolocalpartners.Evaluationreportsshouldthereforedifferentiaterolesandimpactsmoreclearly,andreportexplicitlyontheindependenceoflocalpartners.

23 Amongthese:AmericanFriendsServiceCommittee,CARE,ChristianAid,ConciliationResources,Cordaid,CureViolence,InternationalAlert,Interpeace,Life&PeaceInstitute,NonviolentPeaceforce,PAX,PeaceDirect,PeacefulChangeInitiative,SearchforCommonGround,andYCareInternational.


MatthewKFirpo


6 Recommendati onsSDG 16 requires the world to have made signifi cant progress towards sustainable peace by 2030.24 Meanwhile, the data shows that the world is going in the opposite directi on.25


UNSecurityCouncilResolution2282onSustainingPeacemandatestheUNanditsmemberstatestoimplementandsupportpeacebuildinginitiativesatallstagesoftheconflictcycle,and‘reaffirmstheimportanceofnationalownershipandleadershipinpeacebuilding,wherebytheresponsibilityforsustainingpeaceisbroadlysharedbytheGovernmentandallothernationalstakeholdersandunderlinestheimportance[…]ofinclusivity’.26 Italsoreaffirmsthatwomen’sleadershipandparticipationisessential,whiletherecent‘ProgressStudyonYouth,PeaceandSecurity’calledforyoungpeopletobeatthecentreofpeacebuildingapproaches.27Thesestatementsarematchedbyotherinternationalpolicies,andbypeacebuildingtheory,whichconsistentlystatethatlocalinitiativesareessentialforpeace.Whilethereisnosharedpolicybenchmarkfortheminimumproportionofpeacebuildingaidthatshouldbegiventolocalinitiatives,noraccuratedataabouttheproportionthatiscurrentlyflowingtolocalinitiatives,theCharterforChange–whichcallsforthe‘localization’ofhumanitarianaid–hassettheinitialbenchmarkat20%oftotalhumanitarianfunding.28

Implementationofthesepoliciesandprinciplesatscalehasbeenconspicuouslylackingsofar.Asthisreportdemonstrates,localpeacebuildersaremakingasubstantialimpact,butneedmoresupporttoexpandanddeepentheirefforts.TheUNisinthemiddleofamajorreformofitsapproachestopeacebuilding,andofitsimplementationapproachesmoregenerally.ProgresstowardsSDG16isunderreviewin2019.Thefollowingrecommendationsarethereforetimely,andareaimedprimarilyatdonors,multilateralsandinternationalNGOs:

1. Increase levels of sustained funding to local peacebuilding initiatives at all stages of the conflict cycle, in ways that respect their leadership and autonomy• Supportlocalpeacebuildersindevising,leadingandimplementingtheirowninitiatives,usingfundinginstrumentsthatallowthemtoremainresponsivetolocalstakeholders,andadapttheirapproachesrapidlyandindependentlywhennecessary;

• Useflexiblefundingmodels,includingcorefunding,andsustainthesethroughrepeatedfive-yearfundingcycles,toallowlocalinitiativestimetohaveameasurableimpactandconvertchangedknowledgeandattitudesintonewbehaviorsandstructuralchange;

• Auditthevolumeoffundingcurrentlyappliedtolocalpeacebuildinginitiatives,andmaketimeboundpubliccommitmentstoincrease thistoatleast20%ofallpeacebuildingfunds.

2. Collaborate with and support local peacebuilders to help maximize their direct and indirect impact• Supportlocalpeacebuilderswhowishtotestandevaluatemodelsforscalinguptheirinitiativesandimpacts,forexamplebyexpandingtheirscopeandscale,andlinkingupwithothers;

• Providetechnicalsupporttolocalpeacebuilders,basedonacollaborativeanalysisoftheiropportunitiesandneeds,andonthecomplementarityoflocalandinternationalknowledgeandcapacity;

• Supportlocalcivilsocietyinvolvementinandinfluenceovernationalpeaceprocesses;

• Usepoliticalinfluencetoprotectandenlargethespaceforcivilsociety.

24 UNSustainableDevelopmentGoalsKnowledgePlatform.See:https://sustainabledevelopment.un.org/sdg1625 InstituteforEconomics&Peace,‘GlobalPeaceIndex2018:MeasuringPeaceinaComplexWorld’,June2018.Availablefrom:http://visionofhumanity.org/reports26 UNSecurityCouncilResolution2282(2016),SustainingPeace.27 Youth,Peace&Security,‘TheMissingPeace:IndependentProgressStudyonYouthPeaceandSecurity’,UNFPAandUNPBSO,2018.28 CharterforChange:LocalisationofHumanitarianAid.See:https://charter4change.org/


3. Support local peacebuilders to generate and take advantage of learning about what works locally• Collaboratewithlocalpeacebuilderstofundanddisseminatemoreexternalevaluationsoftheirinitiatives,consideringinparticularinitiativesthatarelessformalorvisible,thoseconductedatnationallevel,thosethatpreventviolentextremism,andthoseundertakenbywomen;

• Commissionanddisseminateresearchintoprogresstowards‘peacewritlarge’inspecificcontexts,disaggregatingthevariouscontributionsoflocalandexternalinitiatives,andidentifyingtheimpactofsynergiesbetweenthem;

• Requireevaluatorstospecifythedistinctroleandimpactsoflocalpeacebuildersinassessmentsoflargerprogrammesinwhichtheyplayapart,andtoassessthedegreetowhichtheyhavespacetoexerciseleadershipandautonomy.

4. Adapt the way donors, multi-lateral organizations and international NGOs work, to make it easier to collaborate with and support local peacebuilders, and for local peacebuilders to access support• Simplifygrantallocationandmanagement,withastrongerfocusonmutualtrustandcollaboration;useadaptiveprogramming;lightenthecomplianceburdenonbothpartiesbyadoptingagreatertoleranceofrisk;andtailorprogrammedesignandgrantapplicationprocessessothatlocalinitiativesarewelcomedandincluded;

• Re-alignperformancemanagementsystemssostaffareincentivizedtospendmoretimewithlocalcivilsocietyactors,andprovidemoresupporttolocalinitiatives;

• Alignrecruitmentandprovidetrainingsostaffhavetheknowledge,skillsandexperiencetoworkeffectivelyandconflict-sensitivelywithlocalpeacebuilders;

• Designcountrystrategiesandprogrammestobemoreinclusiveoflocalvoicesandactions,andreflectiveoftheirrolesandpriorities;

• Makegrantstointernationalorganizationscontingentontheirsupportforandcollaborationwithlocalinitiatives.

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About Peace Direct

Thefullversionofthisreportcanbefoundat:www.peaceinsight.org/reports/whatworks

About the Alliance for Peacebuilding

TheAllianceforPeacebuilding(AfP)istheleadingglobalpeacebuildingnetwork,withmorethan100memberorganizationsworkingin153countriestoendviolentconflictandsustainpeace.Webringtogethercoalitionsinkeyareasofstrategy,policy,andevaluationtoelevatetheentirepeacebuildingfield,tacklingissuestoolargeforanyoneorganizationtoaddressalone.

www.allianceforpeacebuilding.org

PeaceDirectworkswithlocalpeopletostopviolenceandbuildsustainablepeace.Webelievethatlocalpeopleshouldleadallpeacebuildingefforts,andthisreportexplorestheeffectivenessoflocalpeacebuilding,sharingrealandimpactfulinitiativesfromaroundtheworld.

www.peacedirect.org www.peaceinsight.org

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