Structures, values, and interaction in field-level partnerships: the case of UNHCR and NGOs

Abstract

This article discusses the process of transforming partnership from a conceptual framework into a practical, operational framework for field-level interaction among humanitarian organisations. The authors approach this transformation from the perspective of the core values of the partnership concept and the ability of field workers to behave in ways that are consistent with these core values, illustrated by an empirical study of the relationships between the United Nations High Commissioner for Refugees (UNHCR) and NGOs in a refugee-assistance programme in northern Uganda. The authors connect inter-organisational structures with the role of people charged with making partnership work, concluding that the structures and context in which individuals operate make it impossible for them to ‘act out’ the core values of partnership. By identifying the major challenges to creating field-level, operational partnerships, the authors offer lessons for current and future partnership-building initiatives, such as the Global Humanitarian Platform.

Keywords:

• Aid
• Civil society
• Methods
• Sub-Saharan Africa

Notes

We focus exclusively on the implications of partnership for inter-agency co-operation and co-ordination. An exploration of how partnership influences the performance of these organisations, in terms of effective service delivery, is beyond the scope of this article.

These services include the construction and maintenance of roads, school buildings, health centres, and other infrastructure; the provision of primary and secondary school education; the provision of health care through a network of health centres and ambulance services; the delivery of food to designated groups, such as extremely vulnerable individuals (EVIs); the development of agricultural projects, including training and the provision of seeds and of livestock; and the construction of water and sanitation facilities, such as boreholes and latrines.

We focus on the relationship between UNHCR and its NGO partners. The role of the government of Uganda is therefore beyond the scope of this article.

Commenting on this article, UNHCR asserts that no such requirement exists. Whether or not this is the case, the perception of NGO staff that their legitimacy is dependent on UNHCR's approval affects how they experience co-operation with the agency.

One NGO manager's comment on this issue was: ‘I know it used to bug [my predecessor] like crazy to be driving around in a vehicle saying “donated by UNHCR” when it wasn't. You know, he had this argument it's not donated by UNHCR, it's actually donated by the donors of UNHCR.’

Ironically, although the partnership agreement is intended to facilitate the implementation of partnership, it actually widens the gap between the intended and the actual outcomes of the relationship.

Commenting on this article, a UNHCR spokesperson stated that ‘[a]fter 2004, the relationships between UNHCR and NGOs in Adjumani have been extremely co-operative and constructive, from the point of view of UNHCR and the NGO partners. If, as your paper suggests, there was room for improvement in 2003, I am happy to say that enormous improvements have been made.’ UNHCR also stressed that the specific conditions of the Adjumani case, as described in this article, may not be illustrative of UNHCR co-operation with NGOs elsewhere.

Additional information

Notes on contributors

Christian Mommers

Christian Mommers is a researcher at the International Organisation for Migration (IOM), where he leads a programme on issues faced by migrants living with HIV.

Margit van Wessel

Margit van Wessel is an assistant professor in the Communication Science Sub-department at Wageningen University.