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By Summer Brown
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The concept of humanitarian, development, peace (HDP) — referred to also as the triple nexus — gained momentum during the World Humanitarian Summit in 2016, and more recently with the wide adoption of the recommendations on the HDP nexus issues by the Organisation for Economic Co-operation and Development – Development Assistance Committee (OECD-DAC) in 2019.
The HDP nexus pushes for strengthening the links between humanitarian, development, and peace actors and actions in contexts of protracted settings, where all three forms of assistance overlap within the same communities. The focus on strengthening these links, however, is not new. For example, the discourse on ‘linking relief, rehabilitation, and development’ (LRRD) from the 1980s, also attempted to better align humanitarian and development activities. It was, however, critiqued because it saw aid as a linear process and lacked incentives for co-ordination, and focused primarily on the process of humanitarian agencies finishing their work, and development agencies taking over at some point. The triple nexus approach, on the contrary, pushes agencies and actors to improve co-ordination, collaboration, and coherence in order to increase aid effectiveness.
In this blog, I will explore the questions around engagement of national governments with triple nexus approaches. Specifically, I will look at (1) the importance of engaging with the national government; (2) existing challenges to this engagement; and (3) overcoming the challenges in engaging with the national government in relation to triple nexus approaches.
The overarching objective of the triple nexus approach is the prioritisation of better coordination and coherence between different actors and interventions in order to ‘end need’ and ‘leave no one behind’, thereby making the role of national governments a crucial element of this approach.
The Inter-Agency Standing Committee (IASC) Results Group 4 in 2020 stated that “[National] Governments bear the primary responsibility to respond to disasters, protect their own populations, including displaced persons, abide by the refugee conventions, respect international humanitarian principles and law, and should drive the achievement of the 2030 Agenda and the SDGs [Sustainable Development Goals] in their country.”[1] Additionally, the OECD-DAC Recommendation 2 advocates for the “appropriate resourcing to empower leadership for cost-effective coordination across the humanitarian, development, and peace architecture, by supporting local and national authorities, including legitimate non-state authorities wherever possible, and appropriate and in accordance with international law.” Still further, the IASC Results Working Group 4 in May 2020, in regard to the triple nexus, states that actions must be “in consultation with government and leaders in all three pillars both within and outside the UN system.”
Therefore, while on one hand, national governments are critical for moving from emergency relief to long-term peace and stability, on the other, national governments can pose a threat to this progress when they are party to the conflict. This then becomes a difficult, and often a political dilemma, to determine how, and to what extent, should national governments be involved in planning aid strategies and interventions.
Challenges in involving national governments
One of the major concerns with engaging national governments in triple nexus approaches is that they will manipulate the strategies and interventions to their advantage — primarily by using the resources for their own gain — and fail to prioritise the interests of the majority of citizens. According to Berebi and Thelen (2011), aid, when given directly to affected population(s), rather than through unstable and potentially corrupt governments, can prove more effective. This is especially true for contexts dominated by conflict, where aid absorption is far less likely than in contexts that are safer and more secure.
This, however, raises an important dilemma— should a triple nexus approach sidestep government to focus on the need for more and better co-ordination in other areas? Purposely disengaging with the government in the spirit of more effective aid in the short and long-term, however, signals a lack of confidence in the national government, and thus, may cause more harm than good.
For example, according to a United Nations report from 2021 focused on South Sudan, since 2018, there has been more than an estimated $73 million, which has gone missing or been syphoned off by various government officials and bodies. In fact, from the recent interviews, which I conducted in November 2021, there is evidence that there has been an increase in tensions between both international and national non-governmental organisations in South Sudan and the national government. This is reportedly because more and more international donors are side-stepping from working with and depending on the government, for ensuring distribution of funds to specific project interventions. Whenever possible, the funds, instead, go directly to the national NGOs and project implementers. In cases where the national and regional governments are involved, the money meant to reach the intended beneficiary is not only often delayed but is also deficient in the intended amount. This issue becomes even more complex when related to implementing a multi-component initiative, that may require several different government ministries to work together efficiently and effectively.
While this is only one issue of aid in the context of fragile and protracted settings when engaging with national governments, it is nonetheless, a very important one. For the triple nexus approach, I would argue that the national government, like all entities, is made up of different people with varying interests. Therefore, when engaging across actors and actions, a process of discernment, by international actors, should be a priori, in finding those individuals in government who are invested in meaningful change — focused on meeting the needs of the community and the country in a way that builds long-term peace and stability.
A triple nexus approach, therefore, must assess different levels of engagement, that balance information sharing with proactive engagement within government bodies to determine the best way of engagement. Those using a triple nexus approach, must recognise that in pulling together humanitarian, peace, and development actors and actions, it may mean that they are encouraging and promoting inter-governmental collaboration, co-ordination, and coherence, that might be weak or non-existent.
On a positive note, however, encouraging working relationships between different ministries can also become a conduit for them to see the benefits of more co-ordinated responses that are focused on immediate relief, as well as ensuring the long-term peace and development of the country. In essence, the triple nexus approach can provide an opportunity for supporting positive inter- and intra-government working relationships.
Opinions expressed in Bliss posts reflect solely the views of the author of the post in question.
About the author
Summer Brown is currently pursuing her Ph.D. at the International Institute of Social Studies, Erasmus University, Rotterdam. Her research focuses on how Humanitarian and Peacebuilding interventions work together from the perspective of National non-governmental organisations in South Sudan. She takes on consulting work focused primarily on the HDP nexus and conflict sensitivity respectively. Some of her clients include the United Nations Educational, Scientific and Cultural Organization (UNESCO), Mott MacDonald’s Girls Education in South Sudan programme, International Alert, Islamic Relief, Christian Aid and Caritas Switzerland.
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Transactional Sex (TS) is often used as an umbrella term to encompass a wide range of practices ranging from sex work to sexual exploitation and abuse. TS is typically framed in humanitarian settings through reductive lenses that portray the person engaged in them as without agency, forced into “negative coping strategies” by a larger crisis. Academics and practitioners have challenged these dominant framings in the Transactional Sex in Humanitarian Contexts panel as part of the 6th International Humanitarian Studies Conference. The presentations highlighted both the complexity and the nuanced nature of TS in different contexts, and common trends spanning a broad spectrum of humanitarian and displacement settings, including Bangladesh, the Democratic Republic of the Congo (DRC), France, Greece, Jordan, Lebanon, Pakistan, Sudan, Switzerland, Syria, and Turkey. The panel offered a reflection of the ideologies and frameworks implicit in humanitarian operations, which can blind us to the diverse needs and strategies of those engaged in transactional sex.
Transactional sex in humanitarian contexts: contemporary paradigms and interpretations
Transactional sex is the exchange of sex for cash, goods, services, commodities, or privileges. It is often framed by humanitarians as a form of violence in and of itself. Characterised by victim/saviour relationships and rescue narratives, these problematic and essentialising representations can have real world implications on policy and programming, along with unintended, often negative impacts on the lives of those engaged in them. To further complicate matters, there is a lack of conceptual clarity, and standardised and consistent use of terminology, such that what many describe as “transactional sex” is commonly conflated and used interchangeably with survival sex, sexual exploitation and abuse, sex work or sex trafficking.
Transactional sexual relationships exist on a spectrum encompassing various states of consent, power, emotional attachment, economic compensation, and social acceptability. All panelists highlighted that the lived experiences of those engaged in transactional sex do not align well with these monolithic representations, and are rather shaped by numerous structural factors, relating to historical pathways of patriarchy, conflict conditions, and other social, economic, and individual factors that often intersect with intimate consensual relationships. There is growing recognition that interpretations of transactional sexual relationships are culturally determined and constructed, and that this work involves complex negotiation of strategies of agency. Transactional sex occurs against a backdrop of gendered social norms, which are constantly shifting, and may vary between and within countries and communities.
Limitations and challenges of the current discourse
This is not to say that transactional sex is necessarily a safe or desirable livelihood strategy. Transactional sexual relationships are shaped by various structural drivers and conditions that are often created by migration, and aid policies and politics, among other inherent power disparities that entail risks of gender-based violence, and negative impacts on sexual and reproductive health. However, it is crucial to recognise that individuals weigh such risks in relation to their own lives and define what safety and protection means for them. This is further shaped by other factors relating to sexual orientation, gender identity and expression, social and cultural factors, and disability, for example. Research and empirical insights from practitioners are increasingly challenging the erasures of non-heteronormative experiences of transactional sex and calling for more intersectional approaches in research and programming.
People engaging in transactional sex and civil society groups, including human rights defenders, health advocates, sex worker-led organisations, NGOs, and grassroots movements, have already provided rich empirical insights and recommendations across a wide-range contexts, which, however, have not been taken up meaningfully by the humanitarian community. For example, in the post-panel Q&A it was highlighted how the Women´s Refugee Commission (WRC) Working with Refugees Engaged in Sex Work: A Guidance Note for Humanitarians, issued in 2016, might have been overshadowed by the #Aidtoo movement in 2017, and how a moral panic seldom allows for nuance and complexity. Moreover, we may also need to recognise that not all those who engage in TS identify as sex workers, and humanitarian actors do not necessarily see TS as sex work, which may be why such guidance can be interpreted very narrowly. More recently, UNHCR and UNFPA launched the operational guideline Responding to the health and protection needs of people selling or exchanging sex in humanitarian settings (2021) which will hopefully provide a clearer framework going forward in this regard.
The way forward: Rethinking transactional sex policy and programmes.
It is crucial to examine whose knowledge, voice, and power drives policy – or lack of it – on issues around TS, and how people engaged in TS in humanitarian settings, including migrants and refugees, become problematised, supported, and intervened upon by institutions based on vulnerabilities associated with and/or biases regarding gender, sexual behaviour and orientation. It is worth reflecting on why some experiences are omitted or marginalised, and how conditions of vulnerabilities are created by these very same institutions.
Transactional sex will continue to be a coping strategy for many individuals who make complex decisions and tradeoffs in humanitarian and displacement settings. Sometimes it may be the least risky option compared to the available alternatives. Bringing in the perspectives from and lived experiences of people engaging in transactional sex offers a crucial step in understanding their lives, decision-making process, desires, needs, or wants, and understanding. This includes, for example, the structural conditions and policies imposed by governments and humanitarian institutions that drive people into this practice, as well as considerations about whether they want to continue to engage in transactional sex safely or find other strategies. Ensuring sustainable and inclusive programming, and refraining from causing harm by perpetuating stigma and exclusion, centres on this more holistic reimagining of the issue of transactional sex as a complex social phenomenon.
Opinions expressed in Bliss posts reflect solely the views of the author of the post in question.
About the authors:
Clea Kahn has nearly 25 years of experience in the humanitarian sector in Africa, South Asia, and Southeast Asia. She holds an LL.M. in international human rights law, an MSc in psychology, and is currently pursuing a doctorate in counselling psychology. Clea focuses on protection of civilians, gender-based violence and migration/refugee issues, and is a member of the ListenH project: Livelihoods and transactional sex in Humanitarian Crises. She can be contacted at cleakahn@cleakahn.com.
Michelle Alm Engvall is a cultural anthropologist with a specialty in sex work and humanitarian action. Her research focuses on how framed understandings of transactional sex influence policy and programming and how this can lead to unintended consequences for affected populations. She can be contacted at michelle.a.engvall@gmail.com
Shirin Heidari is a senior researcher at the Global Health Centre, and research affiliate at the Gender Centre, Graduate Institute of International and Development Studies in Geneva. She is the principal investigator of a multi-country multi-disciplinary research on transactional sex and health repercussions in forced displacement. She can be contacted at: shirin.heidari@graduateinstitute.ch
Megan Denise Smith is a humanitarian worker and gender-based violence specialist with ten years of experience working with migrants and refugees in Bangladesh, Egypt, Lebanon, Rwanda, and the UK. She is currently based in Cox’s Bazar, Bangladesh with the International Organization for Migration (IOM) where she has managed IOM´s GBV programming as part of the Rohingya refugee response since 2017. She can be contacted at megandenisesmith@gmail.com
Dorothea Hilhorst is professor of Humanitarian Studies at the International Institute of Social Studies of Erasmus University. Her focus is on aid-society relations: studying how aid is embedded in the context. She coordinates the ListenH project: Livelihoods and transactional sex in Humanitarian Crises. Email: hilhorst@iss.nl Twitter: @hilhorst_thea
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