Hostname: page-component-cd9895bd7-q99xh Total loading time: 0 Render date: 2024-12-28T16:17:30.144Z Has data issue: false hasContentIssue false

Transnational blindness: International institutions and refugees’ cross-border activities

Published online by Cambridge University Press:  28 April 2021

Alexander Betts
Affiliation:
Department of International Development, University of Oxford, United Kingdom
Naohiko Omata*
Affiliation:
Department of International Development, University of Oxford, United Kingdom
Olivier Sterck
Affiliation:
Department of International Development, University of Oxford, United Kingdom
*
*Corresponding author. Email: [email protected]

Abstract

The Dollo Ado refugee camps, located close to the Ethiopian-Somali border, have been a major focus for the United Nations Refugee Agency (UNHCR)'s attempts to build livelihoods for refugees and the host community. The context presents an analytical puzzle: despite the importance of cross-border activity to refugees’ socioeconomic lives, such transnational activity has been institutionally invisible to and hindered by the international agencies seeking to assist them. The article explores how and why refugees’ cross-border activities have been systematically ignored by international institutions. As a theoretical starting point, it draws upon the post-development literature, and notably the work of James Ferguson, which explores how international institutions frequently misunderstand the agency and strategies of their subject populations. However, contra Ferguson's predominantly Foucauldian methodological and epistemologically approach, the article adopts a mixed methods approach, and emphasises the agency of aid workers, bureaucratic politics, and political economy in its account of the disjuncture between international institutions’ state-centric livelihoods programmes and refugees’ own cross-border economic strategies.

Type
Research Article
Copyright
Copyright © The Author(s), 2021. Published by Cambridge University Press on behalf of the British International Studies Association

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

1 UNHCR, Briefing Note on Melkadida (UNHCR: Melkadida, Ethiopia, 2018)Google Scholar; UNHCR, Ethiopia Country Refugee Response Plan (UNHCR: Geneva, 2018)Google Scholar; Consulting, Desert Rose, Consulting Report: UNHCR, Kobe Camp, Dolo Ado (Addis Ababa: Desert Rose Consulting, 2012)Google Scholar.

2 Alexander Betts, Andonis Marden, Raphael Bradenbrink, and Jonas Kaufmann, ‘Building Refugee Economies: An Evaluation of the IKEA Foundation's Programmes in Dollo Ado’ (Oxford: Refugee Studies Centre, 2020).

3 Alexander Betts, Leon Fryszer, Naohiko Omata, and Olivier Sterck, ‘Refugee Economies in Addis Ababa: Towards Sustainable Opportunities for Urban Communities?’ (Oxford: Refugee Studies Centre, 2019); Betts et al. ‘Building Refugee Economies’.

4 Khalif, Mohamud and Doornbos, Martin, ‘The Somali region in Ethiopia: A neglected human rights tragedy’, Review of African Political Economy, 91 (2002)Google Scholar; Safia Aidid, ‘Pan-Somali Dreams: Ethiopia, Greater Somalia, and the Somali Nationalist Imagination’ (PhD dissertation, Harvard University, Graduate School of Arts and Sciences, 2020).

5 Pieterse, Jan Nederveen, ‘After post-development’, Third World Quarterly, 21:2 (2000), pp. 175–91CrossRefGoogle Scholar; Frangie, Samer, ‘Post-development, developmental state and genealogy: Condemned to develop?’, Third World Quarterly, 32:7 (2011), pp. 1183–98CrossRefGoogle Scholar; Schouten, Andy, ‘The critical period hypothesis: Support, challenge, and reconceptualization’, Studies in Applied Linguistics & TESOL (SALT), 9:1 (2009), pp. 116Google Scholar; Ziai, Aram, ‘Postcolonialism and development: Disparate tales reconsidered’, Development and Change, 42:5 (2011), pp. 1297–305CrossRefGoogle Scholar; Rahnema, Majid and Bawtree, Victoria, The Post Development Reader (London: Zed, 1997)Google Scholar; Escobar, Arturo, Encountering Development, The Making and Unmaking of the Third World (Princeton, NJ: Princeton University Press, 2011)Google Scholar; Sachs, Wolfgang, The Development Dictionary: A Guide to Knowledge as Power (London: Zed Books, 2010)Google Scholar.

6 Duffield, Mark, Post-Humanitarianism: Governing Precarity in the Digital World (Cambridge and London: Polity, 2018)Google Scholar; Chouliaraki, Lilie, ‘Mediating vulnerability: Cosmopolitanism and the public sphere’, Media, Culture & Society, 35:1 (2013), pp. 105–12CrossRefGoogle Scholar; Pincock, Kate, Betts, Alexander, and Easton-Calabria, Evan, The Global Governed? Refugees as Providers of Protection and Assistance (Cambridge: Cambridge University Press, 2020)CrossRefGoogle Scholar.

7 Scott, James, Seeing Like a State: How Certain Schemes to Improve the Human Condition Have Failed (New Haven, CT and London: Yale University Press, 1998)Google Scholar.

8 Pieterse, Jan Nederveen, ‘Global rebalancing: Crisis and the East–South turn’, Development and Change, 42:1 (2011), pp. 2248CrossRefGoogle Scholar; Parfitt, Trevor, ‘The ambiguity of participation: A qualified defence of participatory development’, Third World Quarterly, 25:3 (2004), pp. 537–55CrossRefGoogle Scholar; Rapley, John, ‘End of development or age of development?’, Progress in Development Studies, 8:2 (2008), pp. 177–82CrossRefGoogle Scholar.

9 Ferguson, James, The Anti-Politics Machine: Development, Depoliticization and Bureaucratic Power in Lesotho (Cambridge: Cambridge University Press, 1990)Google Scholar.

10 Monsutti, Alessandro, War and Migration: Social Networks and Economic Strategies of the Hazaras of Afghanistan (Oxford: Routledge, 2005)CrossRefGoogle Scholar; Alessandro Monsutti, ‘Afghan Transnational Networks: Looking Beyond Repatriation, Synthesis Paper’ (Afghanistan Research and Evaluation Unit, Afghanistan, 2006); Lindley, Anna, The Early Morning Phone Call: Somali Refugees’ Remittances (New York and Oxford: Berghahn Books, 2010)Google Scholar; Brees, Ingres, ‘Refugees and transnationalism on the Thai–Burmese border’, Global Networks, 10:2 (2010), pp. 282–99CrossRefGoogle Scholar; Gale, Lacey, ‘Livelihoods in the region: Sustaining relationships across borders: Gendered livelihoods and mobility among Sierra Leonean refugees’, Refugee Survey Quarterly, 25:2 (2006), pp. 6980CrossRefGoogle Scholar.

11 Ferguson, The Anti-Politics Machine.

12 Hickey, Sam, ‘The politics of protecting the poorest: Beyond the anti-politics machine’, Political Geography, 28 (2009), pp. 473–83CrossRefGoogle Scholar.

13 The few rare examples of International Relations work that engages with the disjuncture between ‘top-down’ institutional perspective and the ‘bottom-up’ perspectives and activities of affected populations, include: Autesserre, Séverine, The Trouble with the Congo: Local Violence and the Failure of International Peacebuilding (Cambridge: Cambridge University Press, 2010)CrossRefGoogle Scholar; Autesserre, Séverine, Peaceland; Conflict Resolution and the Everyday Politics of International Intervention (Cambridge: Cambridge University Press, 2014)CrossRefGoogle Scholar; Rhoads, Emily, Taking Sides in Peacekeeping: Impartiality and the Future of the United Nations (Oxford: Oxford University Press, 2016)Google Scholar; Campbell, Susanna, Global Governance and Local Peace: Accountability and Performance in International Peacebuilding (Cambridge: Cambridge University Press, 2018)CrossRefGoogle Scholar.

14 Chalfin, Brenda, ‘Border zone trade and the economic boundaries of the state in North-East Ghana’, Africa, 71:2 (2001), pp. 202–24CrossRefGoogle Scholar; Shon, Christophe, ‘The border as a resource in the global urban space: A contribution to the cross-border metropolis hypothesis’, International Journal of Urban and Regional Research, 38:5 (2014), pp. 1697–711CrossRefGoogle Scholar; Konings, Piet, ‘The anglophone Cameroon-Nigeria boundary: Opportunities and conflicts’, African Affairs, 104:415 (2005), pp. 275301CrossRefGoogle Scholar; Gualda, Estrella, Fragoso, António, and Lucio-Villegas, Emilio, ‘The border, the people and the river: Development of the cross-border area between southern Spain and Portugal’, Community Development Journal, 48:1 (2013), pp. 2339CrossRefGoogle Scholar.

15 See Jansen, Bram, ‘Humanitarianism as buffer: Displacement, aid and the politics of belonging in Abyei, Sudan/South Sudan’, African Affairs, 117:468 (2018), pp. 370–91CrossRefGoogle Scholar; Rodgers, Graeme, ‘Everyday life and the political economy of displacement on the Mozambique–South Africa borderland’, Journal of Contemporary African Studies, 26:4 (2008), pp. 385–99CrossRefGoogle Scholar; Omata, Naohiko, ‘Who takes advantage of mobility? Exploring the nexus between refugees’ movement, livelihoods and socioeconomic status in West Africa’, African Geographical Review, 37:2 (2017), pp. 98108CrossRefGoogle Scholar; Kronenfeld, Daniel, ‘Afghan refugees in Pakistan: Not all refugees, not always in Pakistan, not necessarily Afghan?’, Journal of Refugee Studies, 21:1 (2008), pp. 4363CrossRefGoogle Scholar; Loescher, Gill, ‘UNHCR and forced migration’, in Elena Fiddian-Qasmiyeh, Gill Loescher, Kate Long, and Nando Sigona (eds), The Oxford Handbook of Refugee and Forced Migration Studies (Oxford: Oxford University Press, 2014)Google Scholar.

16 Monsutti, War and Migration.

17 Géraldine Chateland, ‘Cross-border mobility of Iraqi refugees’, Forced Migration Review, 34 (2010), pp. 60–1.

18 Monsutti, Afghan Transnational Networks; Elca Stigter and Alessandro Monsutti, ‘Transnational networks: Recognising a regional reality’, Promoting Livelihoods and Coping Strategies of Groups Affected by Conflicts and Natural Disasters (Geneva: ILO, 2005), pp. 267–86.

19 Monsutti, War and Migration; Monsutti, Afghan Transnational Networks.

20 Ferguson, The Anti-Politics Machine.

22 Kate Long, ‘In search of sanctuary: Border closures, “safe” zones and refugee protection’, Journal of Refugee Studies, 26:3 (2013), pp. 458–76.

23 Jennifer Hyndman, ‘A post-Cold War geography of forced migration in Kenya and Somalia’, The Professional Geographer, 51:1 (1999), pp. 104–14.

24 Jeffrey Crisp and Dessalegne Damtew, ‘Refugee Protection and Migration Management: The Challenge for UNHCR’, UNHCR Working Paper No. 64 (UNHCR, Geneva 2002).

25 Stephen Lubkemann, Culture in Chaos (Chicago: The University of Chicago Press, 2008).

26 Scott, Seeing Like a State.

27 Michael Barnett, ‘Humanitarianism, paternalism and the UNHCR’, in Alexander Betts and Gil Loescher (eds), Refugees in International Relations (Oxford: Oxford University Press, 2011), pp. 105–32.

28 Pincock et al., The Global Governed?.

29 Barnett, ‘Humanitarianism, paternalism and the UNHCR’, p. 105.

30 Ferguson, The Anti-Politics Machine.

31 Richard Zapata-Barrero, ‘Borders in motion: Concept and policy nexus’, Refugee Survey Quarterly, 32:1 (2013), pp. 1–23.

32 See Lauren Carruth, ‘Kinship, nomadism, and humanitarian aid among Somalis in Ethiopia’, Disasters, 42:1 (2018), pp. 149–68.

33 Keohane, Robert, After Hegemony: Cooperation and Discord in the World Political Economy (Princeton, NJ: Princeton University Press, 2005)Google Scholar; Koremenos, Barbara, Lipson, Charles, and Snidal, Duncan, ‘The rational design of international institutions’, International Organization, 55:4 (2001), pp. 761–99CrossRefGoogle Scholar; Mearsheimer, John, ‘The false promise of international institutions’, International Security, 19:3 (1994), pp. 549CrossRefGoogle Scholar.

34 Hawkins, Darren, Lake, David, Nielson, Daniel, and Tierney, Michael, Delegation and Agency in International Organizations (Cambridge: Cambridge University Press, 2006)CrossRefGoogle Scholar; Abbott, Kenneth and Snidal, Duncan, ‘Why states act through formal international organizations’, Journal of Conflict Resolution, 42:1 (1998), pp. 332CrossRefGoogle Scholar.

35 Barnett, Michael and Finnemore, Martha, Rules for the World: International Organizations in Global Politics (Ithaca, NY: Cornell University Press, 2004)Google Scholar.

36 Outside International Relations, especially in Anthropology, Sociology, and Development Studies, there are several studies that shed light on the field-level interactions of international aid organisations and their beneficiary populations. These include, for example, Krause, Monika, The Good Project: Humanitarian Relief NGOs and the Fragmentation of Reason (Chicago: University of Chicago Press, 2014)CrossRefGoogle Scholar; Carruth, Lauren, ‘Peace in the clinic: Rethinking “global health diplomacy” in the Somali region of Ethiopia’, Culture, Medicine, and Psychiatry, 40:2 (2016), pp. 181–97CrossRefGoogle ScholarPubMed; Malkki, Liisa, ‘Refugees and exile: From “refugee studies” to the national order of things’, Annual Review of Anthropology, 24 (1995), pp. 495523CrossRefGoogle Scholar; Ticktin, Miriam, Casualties of Care: Immigration and the Politics of Humanitarianism in France (Berkeley, CA: University of California Press, 2011)CrossRefGoogle Scholar.

37 Autesserre, The Trouble with the Congo; Autesserre, Peaceland; Rhoads, Taking Sides in Peacekeeping; Campbell, Global Governance and Local Peace.

38 Baines, Erin and Paddon, Emily, ‘“This is how we survived”: Civilian agency and humanitarian protection’, Security Dialogue, 43:3 (2012), pp. 231–57CrossRefGoogle Scholar; Kaplan, Oliver, Resisting War: How Communities Protect Themselves (Cambridge: Cambridge University Press, 2017)CrossRefGoogle Scholar; Jose, Betcy and Medie, Peace A., ‘Understanding why and how civilians resort to self-protection in armed conflict’, International Studies Review, 17:4 (2015), pp. 515–35Google Scholar.

39 Weiss, Thomas and Wilkinson, Rorden, ‘The globally governed – everyday global governance’, Global Governance: A Review of Multilateralism and International Organizations, 24:2 (2018), pp. 193210CrossRefGoogle Scholar; Pincock et al., The Global Governed?.

40 Ferguson, The Anti-Politics Machine.

41 Tobias Hagmann, ‘Fast Politics, Slow Justice: Ethiopia's Somali Region Two Years after Abdi Iley’, Briefing Paper (London: LSE, Conflict Research Programme, 2020); Hagmann, Tobias, ‘Punishing the periphery: Legacies of state repression in the Ethiopian Ogaden’, Journal of Eastern African Studies, 8:4 (2014), pp. 725–39CrossRefGoogle Scholar; Hagmann, Tobias and Korf, Benedikt, ‘Agamben in the Ogaden: Violence and sovereignty in the Ethiopian-Somali frontier’, Political Geography, 31 (2012), pp. 205–14CrossRefGoogle Scholar.

42 Khalif, Mohamud and Doornbos, Martin, ‘The Somali region in Ethiopia: A neglected human rights tragedy’, Review of African Political Economy, 91 (2002), pp. 7394CrossRefGoogle Scholar; Safia Aidid, ‘Pan-Somali Dreams: Ethiopia, Greater Somalia, and the Somali Nationalist Imagination’ (PhD dissertation, Harvard University, Graduate School of Arts & Sciences, 2020).

43 Desert Rose Consulting, Consulting Report: UNHCR, Kobe Camp, Dolo Ado (Addis Ababa: Desert Rose Consulting, 2012).

44 Tobias Hagmann and Mustafe Mohamed Abdi, ‘Inter-Ethnic Violence in Ethiopia's Somali Regional State, 2017–2018’, Briefing Paper (London: LSE, Conflict Research Programme, 2020).

45 Alexander Betts, Leon Fryszer, Naohiko Omata, and Olivier Sterck, ‘Refugee Economies in Addis Ababa: Towards Sustainable Opportunities for Urban Communities?’ (Oxford: Refugee Studies Centre, 2019).

46 UNHCR, Briefing Note on Melkadida (UNHCR: Melkadida, Ethiopia, 2018).

47 IKEA Foundation, Dollo Ado (Leiden: IKEA Foundation, 2018).

48 For an impact evaluation of the programmes, see Betts, Alexander, Marden, Andonis, Bradenbrink, Raphael, and Kaufmann, Jonas, ‘Building Refugee Economies: An Evaluation of the IKEA Foundation's Programmes in Dollo Ado’ (Oxford: Refugee Studies Centre, 2020)Google Scholar.

49 UNHCR commissioned some ‘baseline’ studies, such one by the consultancy company FHI-360 but the methods used meant that the data could ultimately not be used as baseline data to evaluate any of the specific programme interventions. Within our interviews, many of the UNHCR staff involved in Dollo Ado acknowledge an under-investment in research, data collection, and monitoring and evaluation planning throughout the design of the Dollo Ado programmes.

50 Devereux, Stephen, Vulnerable Livelihoods in Somali Region, Ethiopia (Brighton, UK: University of Sussex, 2006)Google Scholar.

51 Desert Rose Consulting, UNHCR, Kobe Camp, Dolo Ado.

52 Devereux, Vulnerable Livelihoods.

53 Ferguson, The Anti-Politics Machine.

54 Monsutti, War and Migration.

55 Médecins Sans Frontières, ‘Refugees in Border Town of Dolo Ado Escape Drought and Insecurity of Somalia’ (2016), available at: {https://www.msf.org/ethiopia-refugees-border-town-dolo-ado-escape-drought-and-insecurity-somalia} accessed 6 November 2019.

56 Alex de Waal's work highlight similar points, for instance, see de Waal, Alex, Evil Days: Thirty Years of War and Famine in Ethiopia (New York: Human Rights Watch, 1991)Google Scholar; de Waal, Alex, ‘Why humanitarian organizations need to tackle land issues’, in Sara Pantuliano (ed.), Uncharted Territory: Land, Conflict and Humanitarian Action (Rubgy: Practical Action Publishing, 2009), pp. 926CrossRefGoogle Scholar.

57 UNHCR. Emergency Handbook, 4th digital edn, Geneva (2015), available at: {https://emergency.unhcr.org/} accessed 26 October 2020.

58 UNHCR data portal, available at: {https://data2.unhcr.org/en/dataviz/58} accessed 27 October 2020.

59 Somali region has nine zones. In each zone, there is an inhabiting ethnic leader who controls the area. In Liban zone, it is king Abdilee. According to local authorities in Dollo Ado town, in this Somali-Ethiopian area, the king is not the regional government of Somali region. Rather he is a tribal leader who represents customary clan and ethic structure.

60 UNHCR, Working Towards Inclusion of Refugees Within the National Systems of Ethiopia (UNHCR: Geneva, 2017)Google Scholar.

61 UNHCR, Comprehensive Refugee Response Framework: The Ethiopia Model (UNHCR: Geneva, 2018)Google Scholar.

62 UNHCR, Briefing Note on Melkadida.

63 UNHCR, Comprehensive Refugee Response Framework.

64 Ferguson, The Anti-Politics Machine.

65 Ferguson, The Anti-Politics Machine, p. 87.

66 See Carrier, Neil, Little Mogadishu (London: Hurst & Co. Ltd, 2016)Google Scholar; Lindley, The Early Morning Phonecall; Horst, Cindy, Transnational Nomads: How Somalis Cope with Refugee Life in the Dadaab Camps of Kenya (Oxford: Berghahn Books, 2006)Google Scholar.

67 Fiddian-Qasmiyeh, Elena, South-South Educational Migration, Humanitarianism and Development: Views from Cuba, North Africa and the Middle East (Oxford: Routledge, 2015)CrossRefGoogle Scholar; Pincock et al., The Global Governed?; Baines and Paddon, ‘This is how we survived’.

68 Barnett, ‘Humanitarianism, paternalism and the UNHCR’.

69 UNHCR, Briefing Note on Melkadida.