MAPPING OF STAKEHOLDERS AND COORDINATION … · mechanism in place among actors stakeholders’,...

MAPPING OF STAKEHOLDERS ANDCOORDINATION MECHANISMS ON MIGRATION

AT REGIONAL AND WOREDA LEVELS

MAPPING OF STAKEHOLDERS AND COORDINATION MECHANISMS ON MIGRATION

AT REGIONAL AND WOREDA LEVELS

December 2018

Tewabe Yilak

This publication was produced at the request of the National Anti-Trafficking and Smuggling Task force Secretariat

and International Labour Organization by Tewabe Assaye

Copyright © International Labour Organization 2019

First published 2019

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Title: Mapping of stakeholders and coordination mechanisms on migration at regional and Woreda levels

Language: English edition

ISBN: 978-92-2-133142-1 (print)

978-92-2-133143-8 (web pdf)

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iii

Foreword

Ethiopia has federal system with nine autonomous regional states and two chartered cities. The regions are further subdivided into sixty-eight zones, and then into five hundred fifty woredas and several special woredas. Despite the general statement of Ethiopia being a major labour-sending country, the second largest refugee hosting country in Africa and a country with an increasing internal migration, the migration dynamics varies from one region to another. Similarly, the level of engagement, coordination, approaches and methodologies, as well as the effectiveness and efficiency in managing migration differs from one region to another.

Owing to the growing evidence that migration has increased in recent years, the subsequent need to address the plights of Ethiopian migrants throughout the migration cycle has also increased. As a result, the number of stakeholders (governmental, non-governmental, civil society and faith based organization) working in the area of migration at national, regional/city administration, zonal/sub city level and woreda level has also increased. There is however lack of comprehensive and reliable information on the area and level of engagement as well as possible coordination and collaboration mechanism in place among actors stakeholders’, which sometime result in the duplication of efforts. To this end, the ILO in partnership with the Anti-Trafficking taskforce decided to undertake a series of assessment on “Mapping of stakeholders and coordination mechanism on migration at regional and woreda level” accompanied by two other reports, which highlights stakeholders working on migration and coordination mechanism at federal level and a summary that highlight the two reports.

The study consulted several stakeholders from various governmental, intergovernmental and non-governmental organizations with initiatives at regional and local level. The assessment was able to provide a comprehensive analysis of existing stakeholders working on migration nationally as well as at Federal, Regional and woreda level. Moreover, it provides an in depth analysis of existing coordination structures in Ethiopia and identifies the gap. The annexe further provides detail contacts of major actors in each region.

This assessment highlighted the meagreness of interventions comparing to the magnitude of the problems, especially in regard to labour migration and the promotion of regular migration. The assessment also revealed the inadequacy of legal framework enforcement as well as weak support mechanism due to lack of clarity of mandate among the different governmental institutions. The assessment further underlined the primary mechanism established or being initiated at regional and local level in the area of migration (excluding IDPs and refugees), is the Anti-human trafficking and smuggling taskforce. However, lack of human and financial resources of the established coordination mechanisms was highlighted as the major hindrance for the absence of coordination.

We hope this assessments findings and practical recommendations will support the Government of Ethiopia and partners in strengthening the coordination mechanisms and avoid duplication of effort in the area of migration. It is also our desire that the findings and detailed contact information of stakeholders working in the area of migration at regional and local level will enhance the knowledge and understanding of the particularity of each region and make available a more appropriate and effective support mechanism.

MAPPING OF STAKEHOLDERS AND COORDINATION MECHANISMS ON MIGRATION AT REGIONAL AND WOREDA LEVELS

iv

We would like to extend our gratitude to the European Union who is funding the ILO project “Support to the reintegration of returnees in Ethiopia” under which this mapping was undertaken and report produced and the ILO and the National Anti-Trafficking and Smuggling Task Secretariat for technical inputs that made this assessment possible. Finally, our sincere gratitude goes to all government as well as nongovernmental stakeholders for their technical inputs throughout the process of conducting the mapping.

Berhanu TsegayeAttorney General and

Chair of the National Anti-Trafficking and Smuggling Task Force

Attorney General Office

Alexio MusindoDirector

ILO Country Office for Ethiopia, Djibouti, Somalia, Sudan and South Sudan, and for the Special

Representative to the AU and the ECA

v

TABLE OF CONTENTS

Acronyms and Abbreviations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xi

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .xii

Findings and conclusions xii

1. Background 1

1.1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

1.2. Approach and Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

1.3. Limitations of the study . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

2 Mapping of stakeholders and coordination mechanisms at regional/city administration and lower administration levels 5

2.1. Addis Ababa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

2.2. Afar Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

2.3. Amhara Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

2.4. Benishangul Gumuz Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

2.5. Dire Dawa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

2.6. Gambella Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

2.7. Harari Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

2.8. Oromia Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62

2.9. SNNP Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72

2.10. Somali Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

2.11. Tigray Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86

ANNEXES

Annex 1: Contact details of government bodies involved in migration management in Addis Ababa City Administration . . . . . . . . . . . . . . 96

Annex 2: Contact details of government bodies involved in migration management in Afar Regional State . . . . . . . . . . . . . . . . . . . . . . . 100

Annex 3: Contact details of regional and woreda-level government bodies involved in migration management in Amhara Regional State . . . . 104


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Annex 4: Contact details of regional government bodies involved in migration management in Benishangul Gumuz Regional State . . . 109

Annex 5: Contact details of government bodies involved in migration management in Dire Dawa City Administration . . . . . . . . . . . . . . . 112

Annex 6: Contact details of stakeholders involved in migration management in Gambella Regional State . . . . . . . . . . . . . . . . . . . 116

Annex 7: Contact details of stakeholders involved in migration management in Harari Regional State . . . . . . . . . . . . . . . . . . . . . . 119

Annex 8: Contact details of government bodies working on migration management in Oromia Regional State . . . . . . . . . . . . . . . . . . . . . 123

Annex 9: Contact details of stakeholders involved in migration management in SNNPR . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 132

Annex 10: Contact details of regional government bodies involved in migration management in Somali Regional State . . . . . . . . . . . . . . 140

Annex 11: Contact details of regional and woreda government bodies involved in migration management in Tigray Regional State . . . . . . 143

Annex 12: Contact details of NGOs working in the field of migration in Addis Ababa City Administration . . . . . . . . . . . . . . . . . . . . . . . . 150

Annex 13: Contact details of NGOs working in the field of migration in the Afar Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 151

Annex 14: Contact details NGOs working in the field of migration in the Amhara Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 152

Annex 15: Contact details of NGOs working in the field of migration in Benishangul-Gumuz Region . . . . . . . . . . . . . . . . . . . . . . . . . . . 154

Annex 16: Contact details of NGOs working in the field of migration in Gambella Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 155

Annex 17: Contact details of NGOs working in the field of migration in the Somali Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 157

Annex 18: Contact details of NGOs working in the field of migration in Tigray Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159

Annex 19: Contact details of NGOs working in the field of migration in more than one Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 160

Annex 20: List of stakeholders consulted . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171

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List of Tables

Table 1: List of zones and woredas/cities selected in the four bigger regional states and Addis Ababa City Administration for mapping . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Table 2: Government bodies involved in migration management in Addis Ababa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Table 3: Charity organizations working in the field of migration in Addis Ababa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Table 4: NGOs, businesses and community-based organizations working in the field of migration in Bole and Addis Ketema sub-cities, Addis Ababa City Administration . . . 11

Table 5: Regional and federal government bodies and their roles in migration management in the Afar Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Table 6: Intergovernmental and non-governmental organizations running migration-related programmes/projects in Afar Regional State . . . . . . . . . . . . . . . . . 16

Table 7: Stakeholders and their roles in Emergency Response Center Management in the Afar Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Table 8: Amhara Region governmental stakeholders and their mandates / activities as they relate to migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Table 9: Charities / NGOs running migration-related programmes/ projects in the Amhara Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24

Table 10: Membership and responsibilities of anti-trafficking working groups in the Amhara Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

Table 11: NGOs working in the field of migration in Kalu woreda . . . . . . . . . . . . . . . . . . . . . . 30

Table 12: Government stakeholders and their mandates as related to mixed migration in Benishangul Gumuz Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32

Table 13: Non-governmental organizations running migration-related programmes/projects in Benishangul Gumuz Regional State . . . . . . . . . . . . . . . . . . 36

Table 14: Membership and responsibilities of the working groups . . . . . . . . . . . . . . . . . . . . . . 38

Table 15: Government bodies and their mandates/activities as related to mixed migration in Dire Dawa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Table 16: Roles of non-governmental organizations working in the field of migration in Dire Dawa City Administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

Table 17: Government bodies involved in migration management in the Gambella Region . . . 49

Table 18: UN agencies and their programmes in the Gambella Region . . . . . . . . . . . . . . . . . . 50


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Table 19: NGOs running migration-related programmes in the Gambella Region. . . . . . . . . . . 51

Table 20: Harari Regional Government stakeholders and their mandates/activities in relation to migration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57

Table 21: Members and responsibilities of working groups established under the Harari Region Anti-Trafficking Taskforce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

Table 22: Government bodies and their roles in migration management in the Oromia Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63

Table 23: NGOs involved in migration-related programmes in the Oromia Region . . . . . . . . . . 65

Table 24: NGOs working in the field of migration in Jimma Zone. . . . . . . . . . . . . . . . . . . . . . . 70

Table 25: Government bodies involved in migration management and their mandates/roles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73

Table 26: NGOs running migration-related programmes/projects in SNNPR . . . . . . . . . . . . . . 75

Table 27: Regional and federal government bodies involved in migration management in the Somali Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80

Table 28: Local and international NGOs, and intergovernmental organizations, running migration-related projects in the Somali Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

Table 30: Intergovernmental and non-governmental organizations running migration-related projects in Tigray Regional State . . . . . . . . . . . . . . . . . . . . . . . . . . 89

ix

Acronyms and Abbreviations

AA Addis Ababa

ACF Action Contre la Faim

AHA Africa Humanitarian Action

ANE Action for the Needy in Ethiopia

ARDO Agricultural and Rural Development Office

ARRA Administration for Refugee and Returnee Affairs

ASDAPO Action for Social Development and Environmental Protection Organization

AU African Union

AVR Assisted voluntary return

BoFED Bureau of Finance and Economic Development

BoLSA Bureau of Labour and Social Affairs

BPRM United States Government Bureau of Population, Refugees, and Migration

BSRP Building Self-Reliance Programme/Project

CCRDA Consortium of Christian Relief and Development Associations

CETU Confederation of Ethiopian Trade Unions

CRS Catholic Relief Services

CSO Charities and Societies Organizations

CVT Centre for Victims of Trauma

DCA Dan Church Aid

DEC Development Expertise Center

DfID Department for International Development

DICAC Ethiopian Orthodox Church Development and Interchurch Aid Commission Refugee and Returnee Affairs Department

DRC Danish Refugee Council

E.C Ethiopian Calendar

ECHO European Commission Humanitarian Aid

EECMY Ethiopian Evangelical Church – Mekaneyesus Development and Social Service Commission

EHF Ethiopia Humanitarian Aid

EOTC Ethiopian Orthodox Tewahido Church

EPRDF Ethiopian People’s Revolutionary Democratic Front


x

EU European Union

GAIA GAIA Association

GOAL GOAL

GRRA Gambella Rural Road Authority

HoA Horn of Africa

IGAD Intergovernmental Authority on Development

IHS Innovative Humanitarian Solutions

ILO International Labour Organization

IMC International Medical Corps

IOM International Organization for Migration

IPs Implementing Partners

IRC International Rescue Committee

JRS Jesuit Refugee Service

LWF Lutheran World Federation

MCDO Mother and Child Development Organization

MCMDO Mothers and Children Multisectoral Development Organization

MoE Ministry of Education

MoFA Ministry of Foreign Affairs

MoFPDA Ministry of Federal and Pastoralist Development Affairs

MoFEC Ministry of Finance and Economic Cooperation

MoH Ministry of Health

MoLSA Ministry of Labour and Social Affairs

MoU Memorandum of Understanding

MSEDA Micro and Small Enterprise Development Agency

MSF-H Medecins Sans Frontieres (Holland)

NFI Non-food items

NGO Non-governmenmental organization

NRC Norwegian Refugee Council

NRDEP Natural Resources Development and Environmental Protection

OICE Opportunities Industrialization Centers Ethiopia

Ops Operation Partners

OSD Organization for Sustainable Development

xi

Acronyms and Abbreviations

OXFAM Oxfam GB

PAPDA Partnership for Pastoralists Development Association

PIE Plan International Ethiopia

PRM Population, Refugees, and Migration

PRS Partner for Refugee Service

PWO Pastoralist Welfare Organization

RaDO Rehabilitation and Development Organization

RED Regional Education Bureau

REH Regional Health Bureau

SCI Save The Children International

SEE Save The Environment Ethiopia

SIDA Swedish International Development Cooperation Agency

SINCE Stemming Irregular Migration in Northern and Central Ethiopia Programme

SNNPR Southern Nations and Nationalities and Peoples Region

TIP Trafficking in persons

ToR Terms of reference

TPLF Tigray People’s Liberation Front

TVET Technical and Vocational Training and Education

TWG Technical Working Group

UN United Nations

UNHCR United Nations High Commissioner For Refugees

UNICEF United Nations Children’s Fund

UNWFP United Nations World Food Programme

UNFPA United Nations Population Fund

UNESCO United Nations Educational, Scientific and Cultural Organization

UNODC United Nations Office for Drugs and Crime

UNIDO United Nations Industrial Development Organization

VoT Victims of Trafficking

WHO World Health Organization

WVI World Vision

WOFED Woreda Office for Finance and Economic Development

WOLSA Woreda Labour and Social Affairs


xii

Executive Summary

A number of governmental and non-governmental organizations are currently engaged in preventing human trafficking and the smuggling of migrants, as well as providing protection and support to victims of trafficking and smuggling, and returnees. However, there is a lack of adequate data as to who does what in the field of migration and the reintegration of returnees. In addition, there is only limited coordination and cooperation among these stakeholders. It is against this background that this study has been conducted, with the aim of mapping stakeholders working in the field of migration at federal, regional, zonal and woreda levels in Ethiopia. The study covers all the nine regional states and the two city administrations of Ethiopia. The mapping study is presented in two main reports: a federal level report and a regional and lower level mapping report. A summary of the main points of the two reports is being prepared separately. This report presents the regional and lower level mapping study findings.

Findings and conclusions

The regional and woreda-level mapping study reveals that many governmental, a few intergovernmental and various non-governmental organizations are working on migration at regional and lower administration levels. The existing interventions are very inadequate, given the magnitude of the problems and issues involved. Organizations working specifically on labour migration, for instance promoting legal migration routes, are very limited in number. In addition, few governmental organizations have clear mandates where migration is concerned. As a result, the legal framework is not adequately enforced and the services and support mechanisms available to victims and returnees have also remained very weak. The fact that only federal bodies are mandated to enforce Proclamation No. 909/2015 also seems to have hampered its enforcement at regional and lower administration levels, due to the lack of a local presence, the limited capacity of branch offices or failure to delegate to local authorities.

The study noted few formal and informal mechanisms for coordinating stakeholders involved in migration management at regional and lower administration levels.

Anti-human-trafficking and smuggling taskforces are the principal mechanisms established or being established at regional and lower levels to coordinate stakeholders working in the field of migration. Taskforces of this kind are already established in most regional states. At zonal and woreda levels, some were already established or in the process of establishment at the time of the mapping study. However, those that are already established are in their infancy. In addition, at the zonal and woreda administration levels they are barely functional and largely ineffective.

The ineffectiveness of these taskforces is largely due to the lack of human and financial resources needed for coordinating stakeholders. Many platforms lack the resources and capacity to adequately coordinate actors. At the same time, the sustainability of coordination mechanisms is also questionable. The activities of coordination mechanisms are not institutionalized and many members of organizations working in the field of migration lack a sense of ownership and commitment to the cause. This is evident from the dismal execution of planned or assigned

xiii

Executive Summary

activities and frequent absences from taskforce meetings. Finally, the lack of a single government body to manage and coordinate migration-related issues was consistently identified as a major factor in the poor coordination of stakeholders. Given their current nomenclature and coordination, the anti-trafficking taskforces have been unable to pay balanced attention to the different aspects of migration. They currently pay due attention to law enforcement, but other aspects, such as labour migration and victim and returnee assistance, have not received adequate consideration. In conclusion, the coordination mechanisms are still weak and barely sustainable. As a result, stakeholders are not working in a coordinated manner. Many are still working independently, with only limited cooperation with other actors.

There are coordination mechanisms or inter-agency taskforces established for refugee programmes at region and camp levels in regions that host refugees. These platforms are fairly effective in coordinating stakeholders’ activities, promoting synergies and facilitating information exchange, as well as monitoring activities.

There are no established or permanent coordination mechanisms for IDPs. Interventions and issues related to IDPs are mainly addressed directly through collaboration with others or as cross-cutting issues. There are, however, some ad hoc mechanisms established to respond to emergencies in regions that host IDPs. In the Somali region, for instance, a Durable Solutions Working Group composed of government bodies, UN agencies and other actors has been established. Establishment of a similar mechanism in Oromia is also under consideration. The lack of a clear regulatory and policy framework mandating a specific government body is largely blamed for the lack of a formal coordination mechanism for IDPs.

1

11.1. Introduction

A number of governmental, non-governmental, UN, international, civil-society and faith-based organizations are currently engaged in preventing human trafficking and the smuggling of migrants, and providing protection and support to victims of human trafficking and smuggling, and to returnees. However, there is a lack of coordination and cooperation among these stakeholders, which results in duplication of effort (in both activities and target areas/ groups), fragmentation of resources and the use of different approaches and methodologies. Adequate data is also lacking about who does what in the field of migration and returnee reintegration. In the light of this, the ILO, at the request of the National Anti-Human Trafficking and Smuggling Taskforce Secretariat of the Federal Attorney General’s Office, contracted an individual consultant to map stakeholders and their objectives, as well as initiatives in the area of migration governance in Ethiopia.

The objective of the study was to map stakeholders working on migration along with their activities, including reintegration initiatives, at regional, zonal and woreda levels in Ethiopia, so as to improve coordination and collaboration among stakeholders. The specific tasks undertaken to achieve the objectives of the consultancy work included the following:

i. Identify government, international, non-governmental, intergovernmental, faith- based and civil society organizations working in the field of migration, together with their objectives, interventions, budgets and geographical areas of operation/intervention at regional, zonal and woreda levels;

ii. Identify and list existing stakeholder coordination mechanisms at regional, zonal and woreda levels;

iii. Identify challenges, opportunities and success stories where coordination and cooperation among stakeholders is concerned;

iv. Assess the efficiency and effectiveness of existing coordination platforms; and

v. Provide strategic recommendations on how to improve coordination and collaboration among stakeholders working on migration.

Background


2

This report presents the findings of the regional and lower-levels mapping study conducted from January to April 2018. The aim of the report is to map regional, zonal and woreda-level stakeholders involved in migration management, together with their mandates and/or programmes/projects, and to identify the mechanisms in place at each level to coordinate stakeholders working in this field.

The regional and lower-level mapping report is organized in two parts. The first part introduces the study and describes the methodology and tools used. The second presents the findings of the mapping study at the regional and lower levels for each region/city administration. The findings for each regional state/city administration are presented separately.

1.2. Approach and Methodology

The mapping study was highly consultative and participatory, involving relevant stakeholders at different levels. The mapping activity went through various stages. In the first stage, the consultant reviewed available secondary information to clearly define the scope of migration governance in Ethiopia. Following this review, the study was framed to map stakeholders working in the areas of labour migration, returnees, refugees and internally displaced persons (IDPs), the creation of employment opportunities for potential migrants in their home areas, the prevention of illegal migration, and the prosecution of traffickers and brokers. In addition, the study tried to map existing coordination mechanisms at different administrative levels. The scope of the mapping study having been determined, the identification of stakeholders working in the different migration management areas commenced. This was partly undertaken by reviewing existing legal instruments, studies and other relevant documents available online. The desk review allowed for a preliminary mapping of existing legal frameworks and policies, and interventions in managing mixed migration flows, as well as producing a list of organizations to be consulted during the mapping exercise. A snowball sampling technique was also used to identify other stakeholders: those identified and contacted early were asked to identify other stakeholders working on migration. NGOs coordinating or supervising authorities at different levels, and consortiums of NGOs, were also consulted to help identify NGOs managing migration-related programmes/projects.

The mapping study covered all the regional states and the two city administrations of Ethiopia. Zonal and woreda-level consultations were, however, conducted only in the four larger regions (Oromia, Amhara, SNNPR and Tigray) and the Addis Ababa city administration. These regions were selected for consultation with lower-level administrative structures owing to their high incidence of outward migration and returnees. In the other regional states (Gambella, Benishangul Gumuz, Harari, Afar, Ethio Somali and Dire Dawa City Administration), the consultation was conducted only at regional/city administration level.

Selection of zones and woredas for consultation in the four bigger regions and in Addis Ababa was undertaken in consultation with the respective regional Bureaus of Labour and Social Affairs (BoLSA) officials. Two sample zones/sub-cities and one woreda from each sample zonal/sub-city administration were selected for consultation in each of the four regions and the Addis Ababa City Administration. Levels of outward migration, and the time and resources available were the criteria adopted in selecting the sample zones and woredas for the study. A list of zones and/or woredas/cities selected in each of the four bigger regional states and in the Addis Ababa City Administration is presented in Table 1 on the following page.

3

Background 1

n Table 1: List of zones and woredas/cities selected in the four bigger regional states and Addis Ababa City Administration for mapping

Region/ City Administration Zone/ Sub-city/ City Woreda/City

Tigray Southern Zone Raya Azebo

East Tigray Zone Wukro City

AmharaNorth Wollo Zone Kobo Woreda

South Wollo Kalu Woreda

SNNPRSGurage Zone Butajira City Administration

Silte Zone Silte Woreda

OromiaJimma Zone Gomma Woreda

West Arsi Zone Gedeb Assasa Woreda

Addis Ababa City Administration Addis Ketema Woreda 7

Bole Sub-City Woreda 13

Various governmental, intergovernmental, religious and non-governmental organizations were consulted at all levels. Over 386 stakeholders were contacted for data-collection (242 government bodies from federal to woreda level, 113 local and international NGOs, and several embassies and development partners, UN agencies, religious institutions, voluntary associations, the mass media and so on). The consultant managed to consult 237 stakeholders at different levels, mostly through face-to-face interviews, while others participated by completing a survey. Interviews were conducted with key stakeholders using semi-structured interview guides designed for the different stakeholder categories, while the survey was sent to most other stakeholders working in the field of migration. Some governmental and non-governmental organizations, as well as diplomatic missions and development partners, were given the choice of completing the survey online using e-mail or in printed format. Details of the key stakeholders consulted for the study in each region are presented in Annexes 1 to 19. The list of stakeholders consulted for the mapping study is presented in Annex 20.

The consultation focused on obtaining stakeholders’ contact details, details of their migration-related programmes/projects, the coordination platforms to which they are party, assessments of the effectiveness and efficiency of existing migration management systems and structures, and other pertinent information. In situations where stakeholders could not be reached for consultation, where possible the consultant tried to collect basic information by browsing their websites.

Surveys and interviews were administered by trained field assistants. All the field assistants deployed from the centre participated in a three-day training activity on how to conduct interviews, how to administer questionnaires and how to tailor and adapt them to the status of the respondent, the specific organization and the location. Local field assistants were also engaged to support data-collection by delivering official letters to identified stakeholders, fixing appointments and collecting completed surveys.


4

Much of the data gathered for the mapping study was qualitative. Qualitative content-analysis methodology was therefore used to systematically map concepts, create themes, find associations between concepts and seek explanations from the data. Attempts were also made to support interpretation by using tables to illuminate and indicate relationships among stakeholders.

1.3. Limitations of the study

The study has certain limitations that must be mentioned here. It would have been more comprehensive if all the stakeholders contacted for consultation had responded and participated. The consultant tried to make up for this by gathering basic information from the websites of some stakeholders.

A further limitation relates to the country’s security situation. Given that Ethiopia was under State of Emergency (SoE) during the data-collection process, some government officials, particularly at lower administrative levels, were unwilling to provide information, fearing that doing so might violate certain provisions of the SoE. Government officials, particularly at regional and lower administrative levels, were also difficult to find due to their frequent engagement in meetings, attention to urgent matters and for other reasons.

Poor documentation systems and lack of documented information, particularly in government offices, was another obstacle to obtaining information concerning mandates, plans and performance reports on migration, and learning about existing institutional arrangements for coordination. In some regions, the consultant was not able to verify whether or not the coordination mechanisms were officially established and/or functional in the absence of official memoranda of understanding, minutes and progress reports.

5

Migration issues are complex and several government bodies need to be involved to cover all the challenges associated with labour migration, emergencies, forced migration, displacement, migration and development, trafficking in persons and human smuggling, immigration and border management, forced and voluntary returns, and the reintegration of returnees and victims. In this section, stakeholders and coordination mechanisms at regional/city administration and woreda levels are identified and discussed. However, it is important to note that there have been revisions to the powers and duties of regional executive organs since the finalization of this report, which could also affect the mandates and duties of government bodies at regional, zonal and woreda levels.

2.1. Addis Ababa City Administration

2.1.1. City Administration-level stakeholders and coordination mechanisms

Addis Ababa is one of the key transit towns for migrants. Addis Ababa is home to only 3.7 per cent of the total Ethiopian population (as per the 2007 Population and Housing Census report)1, but accounts for the third-highest number of migrants (16.3%)2. Addis Ketema, Arada, Kirkos, Kolfe, Lidata and Yeka sub-cities are major places of origin and transit for irregular migration in Addis Ababa. Irregular immigrants originating from regional states also use Addis Ababa as a transit point in travelling to the Middle East or Europe, using Bole International Airport as a border crossing point. Addis Ababa is also home to some refugees benefiting from out-of-camp policies. In this section of the report, we present the key stakeholders working in the field of migration, together with the coordination mechanisms that exist in the city administration.

2.1.1.1. Stakeholders

Government bodies, UN agencies, NGOs, voluntary association, religious institutions and others are involved in migration management in Addis Ababa City Administration. A description of the role of each category of stakeholders is presented below.

1 Central Statistical Agency (CSA). 2008. The 2007 Population and Housing Census of Ethiopia: Country Level Report.

2 International Organization for Migration (IOM). 2017. Migration Profile for Ethiopia (Draft).

2 Mapping of stakeholders and coordination mechanisms at regional/city administration and lower administration levels


6

i. Governmental organizations: Several city administration departments are involved in migration management activities, including BoLSA, the Women and Children Affairs Bureau, the Urban Job Creation and Micro-Enterprise Development Bureau, the Youth and Sports Bureau, the Justice Bureau, the Police Commission, the TVET Agency, the Food Security Bureau, the Health Bureau, the Security and Administration Bureau, and others. In addition, federal government bodies such as the ARRA and the Attorney General’s Office are also involved in the city administration’s migration management activities. The table below presents a list of key government bodies working in the field of migration, together with their roles/mandates.

n Table 2: Government bodies involved in migration management in Addis Ababa City Administration

Name of government organization

Mandates/ activities

Bureau of Labor and Social Affairs (BoLSA)

BoLSA is involved in protection and victim-assistance activities. It provides employment services through its woreda and sub-city-level offices. It creates awareness of the risks of illegal migration through films, drama and other media. The bureau promotes legal migration routes and facilitates legal migration processes for people interested in migrating abroad. It also supports the rehabilitation and reintegration of returnees by working in collaboration with stakeholders such as the TVET agency, the Micro and Small-Enterprise Development Agency and other governmental and non-governmental organizations. The Bureau also provides counselling services for returnees and follow-up support for returnees in self-employment.

Women and Children Affairs Bureau

Engages in awareness-raising activities targeting potential migrant women, victims and returnees. The Bureau’s objective is to protect women and children from becoming victims of human trafficking and ensure that their rights are respected.

Justice Bureau Its mandate includes law enforcement, educating people about the laws of the land and so on. Justice offices, particularly at lower administration level, are also involved in providing legal counselling services to the victims of human trafficking and reporting to the federal Attorney General’s sub-city office. The Justice Bureau has also taken over the coordinating role from the BoLSA following the enactment of the Proc. No. 909/2015.

Urban Job Creation and Micro Enterprise Development Bureau

Supports potential migrants (unemployed) and returnees through job creation, the provision of technical support, facilitation of access to employment, loans and other services needed for engaging in self-employment activities.

Health Bureau Facilitates access to health services for returnees and victims. It also ensures that healthy conditions prevail at temporary settlements provided for victims and returnees, and within the community. Through its local offices, the Bureau is also engaged in awareness-raising activities and provides individual health counselling.

TVET Agency The agency facilities the provision of tailored training for victims and returnees seeking employment. The agency is also mandated to regulate the provision of technical and vocational training and education, consistent with the occupational standards and requirements set by the Ministry of Education. The regulation and provision of technical and vocational training to youth can be regarded as an aspect of prevention activity.

Youth and Sport Affairs Bureau

Is involved in raising awareness on migration among young people to bring about attitudinal change. It also collaborates with other concerned governmental and non-governmental organizations to ensure that youth and returnees benefit from available employment opportunities.

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Mapping of stakeholders and coordination mechanisms at regional/city administration and lower administration levels 2

Name of government organization

Mandates/ activities

City Police Commission The Police work with federal and other regional security bodies to enforce the law, which includes catching traffickers and breaking up their networks. The Police also engage in awareness-raising and other prevention activities through their community policing activities.

Attorney General Branch Office

Prosecutes traffickers and smugglers and raises awareness of the laws of the land.

ARRA The ARRA works with refugees resident in Addis Ababa. It is also implementing a three-year (2018-2021) project entitled “Sustainable Reintegration Support to Ethiopian Returnees from Europe”, funded by the European Union. The project is being implemented in all regions of Ethiopia with a total budget of EUR 15 million, and Addis Ababa is one of the six major regions on which attention is focused. The overall objective of the project is to support the sustainable reintegration of Ethiopian returnees from Europe and ultimately contribute to the development of a national reintegration operational management system for Ethiopia.

ii. Intergovernmental and non-governmental organizations: Various intergovernmental, non-governmental and community-based organizations, as well as religious institutions and businesses, are working in the field of migration in Addis Ababa City Administration. The ILO, IOM and UNWomen are some of the intergovernmental organizations involved in capacity-building, providing material support, strengthening migration governance and migration data management, and other activities.

Civil-society and voluntary associations, such as the Addis Ababa Youth Federation, also participate in migration management activities, as do religious institutions. The mass media, especially the radio stations on wavelengths FM 96.3, 97.1, 102.1 and 101.1, also participate in raising awareness. Businesses, such as the Addis Saving and Credit Institute, are also supporting the reintegration of returnees by granting loans. Some firms, such as Neberet Gelaw Media and Promotion PLC, are involved in awareness-raising activities using funding received from the city administration.

Several charities are also implementing projects to prevent illegal migration, reintegrate returnees and rehabilitate victims. These include the African Humanitarian Aid and Development Agency, Save the Children, the Good Samaritan Association, the Mothers and Children Multisectoral Development Organization (MCMDO), the Forum on Sustainable Child Empowerment (FSCE), Opportunities Industrialization Centers Ethiopia, the LIVE-Addis Ethiopian Residents Charity, Dorcas Aid Ethiopia, Muday and Elshaday, and community-based organizations such as Iddir councils, the Organization for Prevention, Rehabilitation and Integration of Female Street Children (OPRIFS), the Mission for Community Development Program, the Hiwot Integrated Development Association, Rass Agez, Mekedonia, People in Need (PIN), Volontariato Internazionale per lo Sviluppo (VIS), Concern Worldwide (Concern), the Organization for Child Development and Transformation (CHADET), and others. A list of the charities working in the field of migration in Addis Ababa, together with their projects and funding organizations, is presented in the following table.


8

n

Tabl

e 3:

Cha

rity

orga

niza

tions

wor

king

in th

e fie

ld o

f mig

ratio

n in

Add

is A

baba

City

Adm

inis

trat

ion

Nam

e of

or

gani

zatio

nTit

le o

f pro

gram

me

/ pr

ojec

t 1:

Fund

ing

orga

niza

tion

Allo

cate

d bu

dget

Othe

r in

terv

entio

n re

gion

s

Zone

/s /

Sub-

city

/ies

Wor

eda/

sTh

emat

ic

area

sTa

rget

gr

oups

Save

the

Child

ren

Child

ren

on th

e M

ove

proj

ect

(mul

tiple

pro

ject

s)IK

EA F

ound

atio

n an

d Sa

ve

the

Child

ren

Italy

priv

ate

fund

s

5 m

illio

n Eu

ro (2

016

- 20

20)

Amha

ra

SNNP

R Ch

ild P

rote

ctio

n

Good

Sam

arita

n As

soci

atio

nEn

hanc

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natio

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l cap

aciti

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r the

pr

even

tion

of tr

affic

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pers

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(TIP

) and

pro

tect

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ictim

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vuln

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turn

ees

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opia

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ther

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litat

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grat

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vu

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Mot

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and

Ch

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lopm

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niza

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(MCM

DO)

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Plan

Inte

rnat

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l/EU

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mill

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a, L

edet

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alth

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opia

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ity

Prev

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illeg

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hum

an tr

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thro

ugh

inte

grat

ed kn

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and

socio

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tic w

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uman

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port

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ADD

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9

Mapping of stakeholders and coordination mechanisms at regional/city administration and lower administration levels 2Na

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as A

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ploy

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m

igra

tion

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l Yek

a an

d Bo

le s

ub-c

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wore

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igra

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pron

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d un

empl

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uth

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anita

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Aid

and

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lopm

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cy

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s an

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mbe

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sh C

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hild

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kaki

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lity s

ub-c

ity

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ren

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mill

ion

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lity S

ub-

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enes

s-ra

isin

g,

reun

ifica

tion,

ec

onom

ic a

nd

psyc

ho-s

ocia

l su

ppor

t.


10

2.1.1.2. City Administration level coordination mechanism

A taskforce has been established to coordinate the activities of stakeholders working on migration management. The taskforce used to be chaired by the deputy mayor of the city administration and comprised various government departments, religious institutions, charities and youth, women’s and senior citizens’ associations, as well as community-based organizations such as iddirs (informal social insurance arrangements). Since last year, the taskforce has been chaired and coordinated by the Justice Bureau.

The city administration has also been implementing a strategic five-year anti-human trafficking plan covering the period from 2015/16 to 2019/20. The plan has been approved by the taskforce and has five major priorities: prevention, protection, prosecution, promoting partnership, and monitoring and evaluation.

The taskforce is currently functional, but coordination among the stakeholders is poor, particularly in the area of law enforcement. “In six months we have not had any meetings of the task force. The taskforce is disorganized and its coordination is weak”, an official told us. Some informants indicated that existing efforts are not responding adequately to the powerful clandestine trafficking and smuggling networks in the city. As a result, people are still believed to be victimized by the action of the traffickers. The city administration is currently undertaking a study to decide on establishing a unit to coordinate the taskforce. The formation of such a unit may strengthen the platform in the future.

According to some key informants, many stakeholders are working independently. Some have their own mechanisms for bringing governmental and non-governmental organizations together to respond to certain aspects of migration. For example, coordination between the Labor and Social Affairs Bureau, the Women and Children Affairs Bureau and the Youth and Sports Affairs Bureau is considered relatively good. These bodies also involve other stakeholders in their activities in order to raise awareness, support the reintegration of returnees and victims, and so on.

Although coordination has remained weak, the fact that the city administration has a strategic plan for anti-trafficking and smuggling is a strength. The study team was able to view progress reports on implementation of the strategic plan. In addition, the city government has allocated a budget for migration-related activities, which some stakeholders regard as adequate. The city administration has also paid special attention to migration.

Coordination between the federal and city administration taskforces, and between the city administration taskforce and regional taskforces, is also considered poor. Poor coordination among the country’s regional governments is blamed for the rapidly increasing internal migration, particularly from the regions to Addis Ababa. This, according to key informants, has challenged the city government to respond effectively to the ever-increasing number of internal migrants who come to the city looking for job opportunities. They believe this trend could have been mitigated if the city administration and regional governments had been collaborating.

2.1.2. Sub-city level actors and coordination mechanisms

Both governmental and non-governmental organizations have roles in migration management in Addis Ketema and Bole sub-cities. The Labour and Social Affairs Department, the Women and

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Children Department, the Urban Job Creation and Small Scale Enterprises Department, the Youth and Sport Department, the Police Department, the Justice Department and the TVET agency are among the government stakeholders that have some involvement in migration management. The Labour and Social Affairs Department is the key government body in this field at sub-city level. It is involved mainly in registering returnees and victims, providing them with identity cards that shows their “unemployed” status, raising awareness among potential migrants of the risks to illegal migration, promoting legal routes for migration, and supporting the reintegration of returnees and victims in collaboration with other stakeholders. The Women and Children Affairs Department and the Youth and Sports Department are involved in awareness-raising activities, identifying returnees who has no place to live, assessing the financial capacity of returnees to start a business or attend school, and identifying returnees and victims who need medical and psychological support, then taking them to rehabilitation centers in collaboration with organizations involved in the protection of returnees. The task pf the Police and Justice departments, together with the Attorney General’s branch offices, is to enforce the law.

Some NGOs and businesses are also active in the field of migration in both sub-cities. The Addis Credit and Saving Institution and other financial institutions grant loans, while TVET colleges provide training. However, the role of NGOs in migration management and coordination platforms is considered minimal. Nor are charities and NGOs members of the anti-trafficking taskforce established at sub-city level in Addis Ketema, though some NGOs are running projects that target potential migrants and returnees. A list of NGOs, businesses and community-based organizations working in the field of migration in Bole and Addis Ketema sub-cities is given in the following table.

n Table 4: NGOs, businesses and community-based organizations working in the field of migration in Bole and Addis Ketema sub-cities, Addis Ababa City Administration

Name of Organization Current projects/ activities

Addis Ketema Sub-cityForum on Sustainable Child Empowerment

Prevention & protection of trafficked children and young women

OPRIFS Protecting vulnerable migrant returnees by providing socio-economic support

Mission for Community Development program

Prevention of unsafe migration

Hiwot Integrated Development Association

Reversing irregular migration by creating job opportunities

Rass Agez Women’s empowerment activities

Bole Sub-cityNeberet Gelaw Media and Promotion plc.

The company has been raising awareness in the sub-city by drama presentations, an activity sponsored by the city administration.

Mekedonia Rehabilitation of children affected by migration. Even though the organization’s main focus is on street children and elderly people, it also provides support for returnees and victims severely affected by migration. Mekedonia has young volunteers in each woreda, who work with the sub-city offices to identify returnees in need of rehabilitation.

Elshaday Capacity-building for returnees and people living on the street. Different kinds of support are provided by the organization to help returnees get a driving license, become mechanics, and develop the technical skills needed for manufacturing and other sectors.

Muday Muday is another local NGO that helps child returnees gain access to education. It runs its activities in conjunction with the sub-city Women and Children Affairs Department.

Community-based organizations: Community-based organizations such as Iddirs are engaged in creating job opportunities for IDPs and returnees.


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Government bodies and coordination mechanisms involved in migration management in the two sub-cities of Addis Ketema and Bole are similar, though there were some differences. Both use a revolving fund established by the city government to provide loans for returnees. They also work with the Addis Credit and Saving Institution to facilitate access to financial services.

In both sub-cities, according to the majority of informants consulted for the study, an anti-human trafficking committee composed of government bodies and civil-society organizations, such as women’s and youth forums, youth and women’s leagues and women’s and youth associations, has been established to coordinate the work of the various stakeholders. The sub-city administration coordinates and chairs the taskforce. The committees is said to be partially functional.

Some stakeholders consulted for the mapping study considered the existing coordination mechanism in the sub-cities to be partially effective and efficient. They say that, following the establishment of the taskforce in Addis Ketema sub-city, coordination has improved. The stakeholders are working together to solve migration-related problems. The returnees are getting skills training from TVET colleges before starting their businesses, which also helps them to achieve success. Many awareness-raising activities have also been undertaken by various stakeholders.

While the establishment of the taskforce at sub-city level is a good beginning, coordination among the stakeholders is still poor. Meetings are not held regularly and/or as scheduled. Moreover, the activities implemented by stakeholders are not pre-planned. This makes the coordination mechanism very informal and less systematic in its approach and activities. Some key informants were also concerned that the system is not giving equal opportunities to all the returnees and victims of human trafficking. In addition, the monitoring and follow-up mechanisms are weak and inconsistent. For this reason, there is no adequate data and regular reporting mechanism on migration activities. Informants report that migration-related mandates are not institutionalized by the respective stakeholders. Key departments that are supposed to be members of the coordinating committees were found to be unaware of the committee and its activities.

The findings also suggest that the activities implemented by stakeholders are inadequate in responding to the needs of migrants, returnees and victims. Despite the work undertaken by different stakeholders to raise awareness, many informants indicated, for example, that the attitudes of young people have not changed as they are still looking for irregular migration routes. This suggests that the activities undertaken by stakeholders are inadequate or ineffective. The absence of an “owner organization” for migration was also frequently mentioned as a factor in the poor coordination and inadequate responses. “I don’t think there are suitable opportunities for prevention,” one official said.

The effectiveness of the coordination mechanism is constrained by several factors. Migration and its coordination is not given due attention by the government, according to stakeholders. Migration-related activities are often considered secondary or additional responsibilities by government offices. There is inadequate implementation activities. Law enforcement is also said to be weak and the resources available are considered inadequate compared to the need. As a result, stakeholders are not adequately responding to the needs of migrants, returnees and IDPs. The reintegration of victims of human trafficking and of returnees is also being hindered by difficulties in finding accommodation shelter and working space for those wanting to engage in self-employment activities. Mandate issues were also mentioned as constraints to the implementation of activities and coordination among stakeholders. Law enforcement was said to be slow and weak in the sub-cities, due in part to the fact

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that local authorities are not mandated to undertake such functions in relation to migration unless delegated to do so by the federal agencies. One official expressed it as follows:

The Proclamation is very strong. But, the problem is that the Proclamation does not give a mandate to lower-level authorities. There is always delay in the prosecution process (esp. after the establishment of the branch office of the Attorney General).

3.1.3. Woreda-level actors and coordination mechanisms

Two woredas from Bole and Addis Ketema sub-cities (one per sub-city) were visited by the study team: Woreda 13 from Bole Sub-City and Woreda 7 from Addis Ketema Sub-City. In both woredas, there are governmental and non-governmental organizations working on migration issues. The government offices involved in migration management include the Labour and Social Affairs Office, the Women and Children Affairs Office, the Finance Office, the Youth and Sports Office, the Police Department, the Justice Office and the Urban Job Creation and Micro-Enterprise Development Agency. In addition to these government agencies, some business organizations, TVET colleges and charities are also play a part in migration management. In both woredas, the Addis Savings and Credit Institution and TVET colleges are providing support, respectively, by granting loans and giving training for victims and returnees. The number of charities working in the field is different in each woreda. In Woreda 7, OPRIFS, FSCE, MCDP, BETASIDA, RETRUK Ethiopia and Hope for children Australia are supporting migration activities through awareness-raising, counselling and vocational training, as well as providing start-up capital for returnees.

In both woredas, existing activities focus on the reintegration of returnees. Little work is being undertaken on law enforcement, awareness-raising and other dimensions of the migration issue. The woreda government offices are said to lack the institutional, budgetary and human resources to undertake the demanding activities expected of them. The existing work undertaken by woreda offices is largely financed by NGO projects.

In particular, coordination among law enforcement bodies was considered very poor. Many informants felt that the number of illegal migrants and traffickers is constantly growing due to poor law enforcement.

‘The partnership between law enforcement and other law service providers is not in a strong position. Nowadays there are so many irregular migration brokers in the woreda that are facilitating smuggling. The law enforcement as applied to these dealers is very weak. At the same time, IDPs from the regions are committing different crimes in the woreda and law enforcement in this regard is very poor.’

All in all, the work being undertaken on migration is too little to respond to the complex and multi-dimensional issues involved. Budgetary constraints make it difficult to perform migration prevention and control activities effectively. There is limited working space for returnees to engage in self-employment, which hampers the reintegration efforts. As a result, “the number of returnees that are reintegrated and are getting support is too small”, a woreda official said.

Although anti-trafficking committees have been established in the woredas, they are not fully functional. As with higher-level taskforces, meetings are not conducted as scheduled and members


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do not attend meetings as required. Some key stakeholders were also unaware of the existence of these committees. Those working on the reintegration of returnees cooperate to some extent, particularly in conducting joint supervision and monitoring. Collaboration among law enforcement bodies is, however, considered very poor.

There are various factors contributing to the ineffectiveness of the existing coordination mechanisms. The activities being implemented by stakeholders are limited and tend to focus on the reintegration of returnees, though even these efforts are considered very inadequate in responding to the needs of the growing number of returnees. Little work is being undertaken on law enforcement and managing potential migrants, IDPs and others. This is largely attributed to the shortage of financial and material resources, inadequate institutional capacity and manpower, and the limited commitment of stakeholders. As a result, the woredas work with NGOs to get the resources they need to run their activities. In some situations, however, there are incompatibilities between NGO-project target groups and the groups targeted by the woreda administrations. The selection criteria of some NGOs, for example, focus on persons aged between 18 and 34, but most of the returnees are older. This makes it difficult to benefit from the resources provided by NGOs and support the reintegration of returnees.

A further factor is that coordination mechanisms tend to be informal, with mandates not institutionalized by the respective stakeholders. Neither are the roles or the horizontal and vertical communication mechanisms of individual stakeholders clearly defined. The lack of proper mandates was also identified as a constraining factor for law enforcement at woreda level, which was considered poor by many stakeholders. One official told us that:

Coordination between law enforcement bodies is weak. Law enforcement is neglected and currently there are many illegal brokers appearing and facilitating irregular migration.

This was mainly in relation to the local authorities’ lack of a mandate to enforce the anti-trafficking Proclamation. As many officials see it, the existing activities and coordination among stakeholders lack continuity.

2.2. Afar Regional State

Afar Regional State is home to less than 2 per cent of the country’s population as per the 2007 Population and Housing Census report3. Only a small number of Ethiopian migrants are believed to emanate from Afar Regional State, but the region is used as a transit route by irregular migrants from Addis Ababa, Amhara, Tigray and Oromia, who cross the border via Mille, Logia and Gelafi in order to enter Djibouti and travel to the Middle East. In this section of the report, we focus on the stakeholders working on migration issues in this region, and on existing coordination mechanisms.

2.2.1. Stakeholders

The few governmental, intergovernmental and non-governmental organizations involved in migration management in Afar Regional State are described below.

3 Central Statistical Agency (CSA). 2008. The 2007 Population and Housing Census of Ethiopia: Country Level Report.

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i. Government bodies: The regional government bodies involved to some degree in migration management processes and activities include the Regional Justice Bureau, the Security and Administration Bureau, the Police Commission, BoLSA, the Health Bureau and the Bureau for Women and Children Affairs. The regional government’s current focus is on catching and protecting victims of irregular migration that use the region as a transit route for crossing the border. There are almost no initiatives targeting potential migrants and returnees.

In addition to the regional government bodies, federal government bodies such as the National Intelligence and Security Service, the Attorney General’s Office, the Federal Police and the ARRA also pay a part in managing migration in the region. The Attorney General’s Office is mandated to prosecute human traffickers and smugglers, while the ARRA manages and coordinates refugee programmes in the region in conjunction with UNHCR and other stakeholders.

n Table 5: Regional and federal government bodies and their roles in migration management in the Afar Region

Organization Mandates/ Activities

Justice Bureau Creates awareness of national laws among the general public and victims of human trafficking, undertakes investigations and opens criminal files for the attention of the federal prosecutor. Justice Bureau coordinates the regional taskforce.

Bureau of Women and Children Affairs

The Bureau is a member of the regional anti-human trafficking taskforce, but it does not perform much activity relating to migration. Its major area of involvement is when the regional Security and Administration Bureau reports sexual abuse in refugee camps.

BoLSA Registers job seekers, promotes legal migration to youth and potential migrants, provides employment services, facilitates employment by working with other partners, creates awareness of the risks associated with illegal migration among the general public, provides temporary shelter and basic services for victims of illegal migration who are stopped at the border, pays for victims’ transportation costs and facilitates their return to their respective areas.

Regional Police Commission

Protects victims of trafficking and takes them to BOLSA and IOM rehabilitation shelters; raises among in police force of human trafficking and the need to give it due attention; hunts traffickers.

Health Bureau Provides health services such as vaccination and testing for HIV, ART, Tuberculosis (TB), Malariasis and other diseases to permanent refugees resident in Berahle of zone 2 and Asaita of zone 1. The Bureau also builds the capacity of health professionals in refugee camps.

Attorney General Branch Office in Afar

Prosecutes human traffickers and smugglers

ARRA The ARRA manages and coordinates refugees and refugee programmes in refugee camps in the region. It is also implementing a three-year (2018-2021) project entitled “Sustainable Reintegration Support to Ethiopian Returnees from Europe” funded by the European Union. The project is being implemented in all regions of Ethiopia with a total budget of EUR 15 million. The overall objective of the project is to support the sustainable reintegration of Ethiopian returnees from Europe and ultimately contribute to the development of a national reintegration operational management system for Ethiopia.

ii. Intergovernmental and non-governmental organizations: Few intergovernmental organizations run migration-related programmes. Those that do so also focus on victim and refugee assistance activities. IOM, UNICEF, UNFPA, UNESCO, WFP and other intergovernmental organizations are active in the region. IOM, in particular, is involved in various activities: constructing and managing rehabilitation centers for victims, facilitating the return of victims to their homelands,


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providing training to actors, creating awareness of victim protection and handling among the police force and other stakeholders.

Few NGOs run migration programmes. The only information the consultant has managed to obtain concerns Save the Children and the Good Samaritan Association, which implement migration-related projects. There may also be other charities working with refugees in the region. Details of the two known organizations are presented in the table below.

n Table 6: Intergovernmental and non-governmental organizations running migration-related programmes/projects in Afar Regional State

Name of organization

Title of programme /project 1:

Funding organization

Total allocated budget

Other intervention region/s

Zone/s Woreda/s Areas of intervention

Target groups

Save the Children

Youth livelihood programmes (Building the Potential of Youth project (POTENTIAL) and Youth in Action project)

USAID and Mastercard Foundation

POTENTIAL (US$19m (2015-2019); and Youth in Action (US$6.5m (2014-2018)

SNNPR, Tigray, Amhara, Oromia, Somali, and SNNPR

In various selected zones

In a total of 34 selected Woredas

Youth livelihood

Unemployed or underemployed youth aged 15-29 (including returnees)

Good Samaritan Association

Enhancing national and local capacities for the prevention of trafficking in persons (TIP) and protection of victims of trafficking (VoT) and vulnerable returnees in Ethiopia

IOM All other regions

Rehabilitation, reunification and reintegration

Victims, vulnerable groups

2.2.2. Coordination mechanism

There were contradictory views among officials of regional government bodies concerning the existence of a coordination mechanism. From engagement with stakeholders, it seems likely that no anti-trafficking taskforce has been established in the region. There is also a belief that people in the region do not migrate. As a result, some officials do not see the value of establishing a taskforce in the region and are said to be resistant to the idea of establishing one. According to one official: “Our region is a bridge to other countries and many migrants come from different regions of Ethiopia to cross the border. But our own people are not migrants, so there is no much of a task to be performed on this issue”.

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Such coordination as exists in the region focuses on victims of human trafficking, refugees, IDPs and security-related issues. In relation to victims, there is an informal coordination mechanism for stakeholders whose mandates are directly related to victims of human trafficking. BoLSA, the IOM, the Police, the Justice Bureau and the Women and Children Affairs Bureau often cooperate in support of victims. An Emergency Response Center (EMRC) has also been established by the IOM to respond to the needs of victims. The stakeholders are now in the process of formalizing the mechanism. To that end, an Emergency Response Center (EMRC) Procedural Manual has been produced, though not yet approved. The manual specifies the role of each stakeholder in management of the centers and provision of the necessary protection, as well as basic services for the victims. There are also plans to establish an EMRC committee consisting of representatives of BoLSA, the Health Bureau, the Women and Children Affairs Bureau, the Police Commission and the Justice Bureau. The committee will be chaired and coordinated by BoLSA, while the Justice Bureau representative serves as a secretary. The table below presents the key roles of the stakeholders identified in the manual:

n Table 7: Stakeholders and their roles in Emergency Response Center Management in the Afar Region

Stakeholders Main roles

IOM Provides necessary resources and inputs to run the center; provides technical support; produces different formats; conducts monitoring and evaluation; and so on.

Center Staff Diagnose victims, raises awareness of services provided at the center, gives first aid services, refers victims to other health facilities, and so on.

Labour and Social Affairs Chairs the committee; raises awareness of human trafficking; facilitates budget for the center, supervises and evaluates center performance in collaboration with other members of the committee; manages center staff; reports center performance to other stakeholders; manages budget provided by IOM following its procedures; procures materials needed by the center; makes payments and so on.

Health Bureau Facilitates access to health services for victims, follows up provision of health services at centers, facilitates referrals made to other health facilities, provides necessary training and support to center health workers, and so on

Police Commission Protects victims living at the center, raises awareness of trafficking and smuggling, assigns security personnel to centers, provides necessary support to victims from the point

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