“my children should stand strong to ... - refugee-rights.org · 2 | rights in exile policy paper...

RIGHTSINEXILEPOLICYPAPER

“MyChildrenShouldStandStrongtoMakeSureWeGetOurLandBack”:HostCommunityPerspectivesofUganda’s

LamwoRefugeeSettlementMarch2018

2|RIGHTSINEXILEPOLICYPAPER MARCH2018

THERIGHTSINEXILESERIESBRINGSTOGETHERPUBLICATIONSTHATFOCUSONKEYISSUESOFREFUGEEPOLICYANDREFUGEERIGHTS.

ABOUTTHEINTERNATIONALREFUGEERIGHTSINITIATIVE

The InternationalRefugeeRights Initiative (IRRI)was founded in2004toinformandimproveresponsestothecyclesofviolenceanddisplacement that are at the heart of large-scale human rightsviolations. Over the last 13 years, we have developed a holisticapproachtotheprotectionofhumanrightsbefore,during,andintheaftermathofdisplacement,by:

o identifyingtheviolationsthatcausedisplacementandexile,

o protectingtherightsofthosewhoaredisplaced,ando ensuring the solutions to their displacement are

durable,rightsrespecting,safeandtimely.Weworktoensurethevoicesofthedisplacedandconflictaffectedcommunitiesarenotonlyheardbutheededattheinternationallevelthrough our evidence based advocacy that is built on solid fieldbasedresearchandanalysis.Weareregisteredasanon-profitorganisationintheUS,theUK,andUganda.

www.refugee-rights.org

ABOUTTHISPAPERTigrannaZakaryanconductedthefieldresearchanddraftedthispaper.LucyHovil,YotamGidronandAndieLambeprovidedinputandsupport.Theteamwouldliketoexpresstheirgratitudetothepeoplewhogavetheirtimeandparticipatedinthisresearch.

Coverimage:Receptioncentre,Palabek-Ogilisub-county,LamwoRefugeeSettlement©IRRI2018

All rights reserved. Materials may be freely disseminated and used for educational, activist and non-profit purposes, with dueacknowledgmentofthesource.Otherwise,nopartofthispublicationmaybereproduced,storedinaretrievalsystemortransmittedinanyformorbyanymeans,electronic,mechanical,photocopying,recordingorotherwise,withoutpriorwrittenpermissionfromtheInternationalRefugeeRightsInitiative.


BackgroundUganda’s refugeepolicieshave gainedpositive recognition amongpolicy-makers anddonors,particularly since the 2013 outbreak of war in South Sudan. By January 2018, there wereapproximately1.4millionrefugeesandasylumseekersthroughoutthecountry,themajorityofwhomarefromSouthSudan.1TheGovernmentofUganda(GoU)hasvowedtokeepitsbordersopen to asylum seekers at a timewhen irregularmovements of refugees andmigrants fromAfrican countries are at an all-time high.While themajority remain within Africa, some aremakingperilous journeys across theMediterraneanSea to reach safety inEurope,whichhaspromptedthesecuritisationofbordersandmigrationpolicies.2This paper focuses on an area in northernUgandawhere the government opened a refugeesettlementinApril2017,withouttheinclusiveconsentofthecommunity.Itexaminestheprocessby which land was acquired from customary Acholi landowners in Lamwo District to open“Lamwo Refugee Settlement”. In December 2017, the International Refugee Rights Initiative(IRRI) interviewed customary landowners, local government officials and broader host

community members in order to examine aspects ofUganda’s refugee policies through the perspective of thehost communitywhodealswith thedaily implicationsofsharingresourceswithrefugees.NorthernUgandahashistoricallyservedasanepicentreformass displacement, both for refugees and internallydisplacedpopulations(IDPs).Thelocalcommunitiesthere,havealonghistoryofhostingrefugees,datingbacktotheearly1960swhenSudaneserefugeesfledSudan’sfirstcivil

war.Dually,theconflictbetweentheLord’sResistanceArmy(LRA)rebellionandtheUgandangovernment between 1987-2006, subjected Uganda’s Acholi people to extreme brutality anddisplacement.3 During the war their community was mandated into IDP camps, which hasresultedinthecurrentcomplexityofnorthernUganda’spost-conflictcontext.ThispaperbeginsbypresentingelementsofUganda’srefugeepoliciesandcontextualisingtheirrealitiesas theypertain tobothrefugeesandhostcommunities. Itparticularly focuseson therealitiesofcustomarylandownersinLamwoDistrictwhogavelandfortherefugeesettlement,and the challenges they now face in securing their land tenure due to thememorandum of 1ThemajorityofrefugeesinUgandaarefromSouthSudan,withthesecondlargestgroupbeingfromtheDemocraticRepublicofCongo,followedbythosefromSomalia,Rwanda,Burundi,Ethiopia,Eritrean,amongothernationalities.Formoreinformationsee:https://reliefweb.int/sites/reliefweb.int/files/resources/Uganda%20Snapshot%20March%202018.pdf(accessed23March2018).2InternationalRefugeeRightsInitiative,StrategicInitiativeintheHornofAfricaandSOAS“TacklingtherootcausesofhumantraffickingandsmugglingfromEritrea:TheneedforanempiricallygroundedEUpolicyonmixedmigrationintheHornofAfrica”November2017,availableat:http://refugee-rights.org/wp-content/uploads/2017/11/IRRI-KP-final.pdf3FormoreinformationontheimpactoftheLRArebellion,see:RefugeeLawProjectWorkingPaperNo.5,“WarasNormal:TheImpactofViolenceontheLivesofDisplacedCommunitiesinPaderDistrict,NorthernUganda”,p.6,June2002.Availableat:https://www.refugeelawproject.org/files/working_papers/RLP.WP05.pdf(accessedon3March2018).

ThispaperfocusesonanareainnorthernUgandawherethegovernmentopenedarefugeesettlement…withouttheinclusiveconsentofthecommunity.


understanding(MoU)betweenthemandtheGoUwhichfailstostatehowlongtheirlandwillbeoccupied.Further,thepaperexaminesthehostcommunity’sdesiretolocallyintegraterefugeesasopposedtoestablishingasettlement.Itshedslightonthecommunity-drivenmechanismsofhostingrefugeesandmakesrecommendationsonhowtheroleofhostcommunitiesinUganda’srefugeeresponsecanbebettersupportedboththroughthepreservationofcustomarylandrightsanddevelopment.Uganda’sRefugeePolicies:theoryandpracticeTheUgandaRefugeesActof2006andtheRefugeesRegulationsof2010arethelegalprovisionsguiding themanagementofall refugee-relatedactivities inUganda.Within these frameworks,refugeesareabletoaccessbasicsocialservicessuchashealthcareandprimaryeducationand,mostnotably,aregrantedrelativefreedomofmovement.4The GoU distinguishes between refugee settlements andcamps. Refugee settlements are understood byinternational actors to be more progressive, long-termstructures,offeringadegreeofself-sufficiency,whilecampsare seen as temporary responses to forceddisplacement.Currently,overonemillionofUganda’srefugeepopulationliveinruralsettlementsinthenortherndistrictsofUganda.Regardless of semantics, the key issue is that thesesettlementsarecommonly located ingeographicallyremoteareasandare inunderdevelopeddistrictswhere resources are equally scarce forhost communities.Due to the locationof thesettlements, theabilityofrefugees tolocally integrateandestablishasenseofself-sufficiencyremains limited–anacuteproblemgiven theoftenprotractednatureof displacement in theregion.Uganda’srefugeepolicieshaveparticularlybeenapplaudedforgrantingrefugeesaccesstoland,apolicythatiscommonlymisrepresentedasoneinwhichallsettlement-basedrefugeesreceivelandforagriculturaluse.Inreality,asofMarch2017,only55.1percentofallrefugeeshadlandforarablehouseholdfoodproduction,withratesofaccesstolandvaryingbetweensettlements.5Whilethereisminimaldataonlandaccess,refugeesresidinginsettlementsinwesternandsouth-western Uganda have generally been facilitated in their ability to engage in agriculture, asopposedtoSouthSudaneserefugeesinnorthernUganda,whoseaccesstolandhasbeenmorelimitedduetothelarge-scaledemandthere.GiventhatasignificantnumberofSouthSudanese

4 According to the Refugee Act 2006: Article 30(2), freedom of movement of recognised refugees in Uganda isdeterminedby“reasonablerestrictionsspecifiedinthelawsofUganda,ordirectionsissuedbytheCommissioner”andfurtherdefinesthestatedrestrictionsaspertainingto“nationalsecurity,publicorder,publichealth,publicmoralsortheprotectionoftherightsandfreedomsofothers.”Althoughthecommonperceptionofthislawisthatitallowsforabsolutefreedomofmovement,itsinterpretationandimplementationremainsdisputedforsettlement-basedrefugeesassomeCampCommandantsrequirethemtorequestpermitstoleavesettlements,whileothersdonotenforcethisprocedure.5OPM/UNHCRInterAgencyPresentation,FoodSecurityandNutritionAssessment,Kampala,Uganda,10March2017.Settlement-basedrefugeesinUgandareceiveaplotof landtoconstructahome;thisdoesnotguaranteehowever,accesstolandforhouseholdfoodproduction.Generally,longerstandingrefugeecommunitieshavebeengivenlandforagriculture,thoughthisvariesineachsettlementandbothhouseholdandagriculturalplotsaresubjecttoreductioninordertoaccommodatenewlyarrivingrefugees.

settlementsarecommonlylocatedingeographicallyremoteareasandareinunderdevelopeddistrictswhereresourcesareequallyscarceforhostcommunities.


refugeescomefrompastoralandagro-pastoralcommunities,manyresorttosellingtheirfoodrationsinordertorentlandfromUgandannationalsinanefforttoachievefoodsecurityandeconomiclivelihoods.The rapid expansion and demarcationof land for refugee settlements innorthernUgandahasallowednationaland international actors to respondtothe humanitarian needs of SouthSudanese refugee communities. Whilethis has indeed led to life-savinginterventions, the processes by whichland was acquired from hostcommunities has gone largelyunquestioned by donors andhumanitarian and developmentpartners active in the Uganda refugeeresponse. However, the need tomitigatetensionsbetweentheGoUandhost communities is crucial,particularly in the case of customarylandowners whose land supportsrefugeesinnorthernUganda.The complexities surrounding landnegotiations are exemplified in theexpansion of Uganda’s refugeeresponse into Lamwo District in theAcholisub-region.Inthiscontext, landacquisition for a refugee settlementneeds to be examined through a legalframework in order to ensure thepreservation of land rights forcustomarylandowners.UnderstandingCustomaryLandOwnershipInUganda,individuals’andcommunities’landrightsaregovernedbymultiplelegalsystemsthatrepresentamixtureofso-called“traditional”legalsystems,colonialresiduesandmorerecentlegislationandreforms.The1995UgandanConstitution inArticle237(1)statesthat “Land inUgandabelongs to the citizensofUgandaand shall vest in them inaccordancewith the landtenuresystemsprovided for in thisConstitution”.The landtenuresystemsrecognisedby theConstitutionarecustomary,freehold,mailo6andleaseholdasthefourformsoflandownership

6Theterm“mailo”referstoholdingregisteredlandinperpetuityandhavingrootsintheallotmentoflandpursuanttothe1900UgandaAgreement(alsoknownastheBugandaAgreement)andissubjecttostatutoryqualifications,asdescribedinPartII(3)oftheLandAct1998.

Source:Trocaire,ProtectingRightstoCustomaryLand:AResearch Project. Map prepared by Physical PlanningOffice,Gulu.


(Article237(3)).AllofthesetenuresystemsaredefinedintheLandActof1998(PartII(2and3))but while customary systems refer to those regimes that governed the ways in whichcommunitiesusedlandpriortocolonialism,theconceptsofleasehold,freeholdandmailowerefirstintroducedbytheBritishduringthecolonialera.ThelandtenuresystemsgoverninglandrightsinUganda’selevenrefugeehostingdistrictsvary.Inthenorth,includinginWestNile,landisownedundercustomarytenure,whilelandtenureinwesternandsouth-westernUganda,includesbothfreeholdandleaseholdandismanagedbylocaldistrictlandboardsonbehalfofthecentralgovernment.7The Land Act of 1998 defines customary tenure as governed by “rules generally accepted asbinding and authoritative by the class of persons to which it applies” (Part II(3)(1)(b)).Customarylandisownedbyindigenouscommunitiesandisadministered throughtraditionalgovernancemethods,whichinthecaseoftheAcholicommunityinnorthernUganda,ismanagedthroughclansandsub-clans.Althoughitisdividedupforindividualandfamilyuse,itremainsundertheownershipofthecommunityat-large.InIRRI’sdiscussionwithcommunitymembersinLamwoDistrict,communallandrightsweredescribedastheuseoflandforhumansettlement,hunting grounds, grazing, agriculture and burial grounds, among other uses. Beyond theimmediateuseoflandtosupportdailyliving,itispreservedforfuturegenerationsandpassedonbyancestrallineagethroughtheguidanceofclanleadersandelders.LandAcquisitionandtheConstitutionInaccordancewiththeConstitution,iflandistaken,thenfairandadequatecompensationistobeprovidedinatimelymanner.Article26(2)statesthat“Nopersonshallbecompulsorilydeprivedofpropertyor any interest inor right overproperty”with the exceptionof landbeing takenthrougheminentdomain,whichischaracterisedas“necessaryforpublicuseorintheinterestofdefence,publicsafety,publicorder,publicmoralityorpublichealth”(Article26(2)(a)).Itfurthernotes thatwhen there is a compulsory acquisition of property, “promptpayment of fair andadequatecompensation,priortothetakingofpossessionoracquisitionoftheproperty”(Article26(2)(b)(i))willoccur.Notably, land rights of minority and indigenous groups are also recognised by internationalnorms, most recently enshrined in the UN Declaration on the Rights of Indigenous Peoples(UNDRIP).8Thisdeclarationrecognisesthatcommunitiesshallnotberemovedfromtheirlandswithouttheirfree,priorandinformedconsent,andfurtherstatesthatlandshouldonlybetakenuponagreementofjustandfaircompensation(Article10).

7Article241of theConstitution,defines thefunctionsofdistrict landboardsas theresponsibility(a) toholdandallocatelandinthedistrictwhichisnotownedbyanypersonorauthority;(b)tofacilitatetheregistrationandtransferofinterestsinland;and(c)todealwithallothermattersconnectedwithlandinthedistrictinaccordancewithlawsmadebyParliament.8TheDeclarationontheRightsofIndigenousPeopleswasadoptedbyamajorityof144stateswhovotedinfavour,howeverUgandadidnotvote.TheUnitedNationsDeclarationontheRightsofIndigenousPeoples,13September2007,availableat:https://www.un.org/esa/socdev/unpfii/documents/DRIPS_en.pdf(accessed24March2018).


LandownersfromLamwo’sPalabek-Ogilisub-countydescribedtoIRRItheprocessbywhichlandwasacquiredfortherefugeesettlement.9Hostcommunitymembersdescribedan“open”MoUbetweenLamwoDistrictgovernmentandlandownerswhichdoesnotspecifyhowlongtheirlandwillbeusedfortherefugeesettlement.TheopentimeframeintheMoUwasdescribedasoneofthemainconcernsamonglandowners.Asonecommunityleaderputit,“Refugeesarenowstayingincampsforovertwentyyears...thisisancestrallandandcampswillspoilourland.”10Indeed,theprotractedpresenceofrefugeesinnorthernUgandaisaphenomenonhostcommunitiesare

accustomed to, given the role they played inaccommodatingSouthSudaneserefugeefordecadesduringSudan’scivilwars(1963-1972,1983-2005).11Local government officials explained the lack ofinformationregardinghow long landwillbeoccupiedbyarguingthatinternationalrefugeelawprohibitstheforcedor involuntary repatriationof refugees.12Thus, since it isunknownhowlongrefugeeswillstayinUganda,theywereunabletocommittoaclearperiodoftimeafterwhichlandwill be returned to its owners. Arguably, however, it is

entirelypossible todraftaMoUthat is timeboundwithaclausestating itcouldbereturnedearlier,shouldsuchassituationprevailandbeextendableifnecessary.Itisalsoproblematictoassume that refugees will necessarily remain in settlements and with no access to durablesolutions for theentiredurationoftheir time inUgandaandregardlessofhow longtheywillremaindisplaced.WhileitwasexplainedtoIRRI,bysub-countyleadership,thattheMoUdocumentisaccessibletoalllandowners,todate,landownersinterviewedbyIRRIexpressedtheirinabilitytoaccessthedocument.13WithouthavingaccesstotheMoU,IRRI,northelandownersthemselves,areabletoestablishhowtheymightbeabletoclaimtheirlandbackorwhethertheyhave,ineffect,giventheir land in perpetuity. This has exacerbated the pre-existing trust issues between LamwoDistrictgovernmentofficialsandlandowners,asexpressedbyanelderwhohaddonatedover50acresoflandforthesettlement: TheyarerefusingtogivememydocumentbecauseI’mleftwithfewyearsandwhenIdie

theywillgrabtheland.Theyrefusedtoshowusandit'ssuspicious...Mychildrenshouldstandstrongtogetadocumenttomakesurewegetourlandback.14

9LamwoRefugeeSettlementislocatedtwosub-counties–Palabek-OgiliandPalabek-GemandneighboursPalabek-Kal.ThemajorityofthesettlementisinPalabek-OgiliwithsomealsolocatedinPalabek-Gem.10InterviewwithLamwocommunityleader,KitgumDistrict,10December201711InternationalRefugeeRightsInitiative,“SouthSudaneserefugeesinAdjumaniDistrict,Uganda:Tellinganewstory?”July2015,availableat:http://refugee-rights.org/wp-content/uploads/2017/11/TellingADifferentStory.pdf12InterviewwithaPalabek-Ogilisub-countylocalgovernmentofficial,11December2017.Ontheprincipleofnon-refoulement,seealsoInternationalRefugeeRightsInitiative,“Protectionpolitics:Preventingillegalextraditions,refoulementandcross-borderpersecutioninEastAfrica”January2018,availableat:http://refugee-rights.org/wp-content/uploads/2018/01/Protection-Politics-FINAL.pdf13InthemeetingwithaPalabek-Ogilisub-countryofficial,IRRIrequestedacopyoftheMoUandwastoldthatitwasunavailable.14Interviewwithlandowner,Palabek-Ogilisub-county,11December2017

SinceitisunknownhowlongrefugeeswillstayinUganda,[governmentofficials]wereunabletocommittoaclearperiodoftimeafterwhichlandwillbereturnedtoitsowners.


While host community members interviewed by IRRI were understanding of the standardsguiding theprotectionofrefugees, theyvoicedconcernover their inability toaccess theMoUdocumentstipulatingthetermsuponwhichtheirlandisbeingutilised.Additionally,communityleaders expressed concern over the extent towhich landownerswere able to understand orinterpret thedocument, given its technical legal language and the illiteracy levels among thecommunityat-large.Recent negotiations between customary landowners and the government should becontextualisedinlightofthepost-conflictrealitiesbothinLamwoandtheAcholisub-regionsasawhole.Theunderlyingmistrustbetweenlandownersandgovernmentisrootedin20yearsofwarintheregionbetweentheLRAandtheGoUandtheirforceddisplacementduringthisperiodwhichledtothecurrentandongoingdisputesoverlandrightsandboundaries.IRRIinterviewedcommunitymemberswhoattested toadeep-rooted fearabout landgrabbingschemesby thecentralgovernmentandmorepowerfulindividualswithintheirowncommunityforthepurposeof “development” and “investment”projects.Inrelationtoutilisingcustomarylandfor the purpose of a refugeesettlementandthepotentialforthatland to revert to the landowners,multiple interviews referred to thecommon example of the formersettlement known as Achol-Pii nowlocatedinpresent-dayAgagoDistrict,which hosted South Sudaneserefugeesuntiltheearly2000s.DuetoongoinginsecuritycausedbytheLRAinsurgency, refugees were relocatedto Kywangali and Kiryandongorefugee settlements,15 and Achol-Pii became an army barracks. The land on which it wasestablished,todate,hasnotbeenreturnedtotheoriginallandowners.Furthermore,individuallandownersinPalabek-Ogilisub-county,expressedtoIRRIthattheMoUwassignedbyselectindividuals,whowhilsthavingadegreeoflegitimacywithinthecommunity,didnotinclusivelyconsultorreceiveconsentfromallthelandownerswhosepropertyisnowapart of the settlement. Asdescribed by a landowner, “Leaderswho did not give up landarerepresenting those who gave up land.”16 It was further conveyed that the individuals whofacilitatedthelandacquisitiondidsoinanopaquemannerwhichhasfurtherraisedquestionsamongst somemembers of the local community toward the GoU’smotivation to establish arefugeesettlementinitscurrentlocation.Anotherlandownerwhorefusedtogiveuplandstated

15ReliefWeb,“Uganda:ResettlementofAcholi-Piirefugeestobeexpedited”,15August2002,availableat:https://reliefweb.int/report/uganda/uganda-resettlement-acholi-pii-refugees-be-expedited(accessed24February2018).16Interviewwithlandowner,Palabek-Ogilisub-county,11December2017

ReceptioncentrelocatedinPalabek-Ogilisub-county,LamwoRefugeeSettlement(©IRRI2018)


“Wearenowstrugglingwithlackofinformationbecausesomelandownersweretargetedduringnegotiations,whileotherswhovocallysaidnoarenowtakenoverbythesettlement.”17LandTenureSecurityBasedontheinformationgatheredduringthisresearch,itcannotfullybedeterminedthatlandacquisition occurred in an unconstitutional manner, given that a MoU does exist and somelandownerswerecompliantingivinglandforthepurposeofthesettlementirrespectiveofthecurrent challenges they face. The Constitution's legal framework and guiding principles do,however,needtobeupheldtoensurelandtenuresecuritytocustomarylandowners,aswellasprovidetransparencyandaccountabilitywhenlandisacquired.Ninety-fivepercentofUgandanslandownersdonothavelandtitlesbecausethevastmajorityareunabletoaffordthecostsassociatedwithformalisingtheirlandrights.18Accesstolandtitlesisfurther complicated by a lack of awareness among landowners regarding their rights, localculturesandattitudestowardlandownershipwhicharenotreflectiveofUganda’scontemporarysystemsof landmanagement(e.g.nationaland international investments,populationgrowth,naturalresourcediscoveries)andcorruption,amongotherfactors.19Traditionally,communallandterritoriesandownershipwereknownbylandmarkssuchastreesandnaturallandscapes.CurrentlyinLamwoDistrict,theexpansionofthesettlementiscausingenvironmental degradation andas a result, natural boundaries are rapidlydisappearing.Thecomplexitiessurroundinglandacquisitionarefurtherexacerbatedbyinadequaterecordkeepingasthelandgivenbyeachlandownerhasnotbeenmappedoutandrecorded.Theseconsequenceswereexplainedbyalandowner:“Theydidnotrecordhowmuchanindividualhasgivenandnowtheyarebuildingpermanentstructures...ourlandboundariesaredisappearing.”20ThePromiseofDevelopmentinLamwoDistrictTheGoUhasintegratedrefugeesintoitsNationalDevelopmentPlanIIandaimstostrengthenhostcommunity-refugeerelationsbypresentingrefugeesasagentsfordevelopment.Itworkstoimplementa70/30developmentmodel,whichdeterminesthatwhile 70 percent of externally funded humanitariananddevelopmentprogrammesaregearedtowardrefugees,30 percent should be matched to host communities. Tocompliment this effort, the Refugee andHost PopulationEmpowerment (ReHoPE) strategy - an initiativespearheadedbytheUNandWorldBankwhich,inlinewiththeComprehensiveRefugeeResponseFramework(CRRF)- works to bridge the gap among multi-stakeholderinitiativesintherefugeeresponse.

17Interviewwithlandowner,Palabek-Ogilisub-county,11December201718S.Mabikke,“HistoricalContinuumofLandRightsinUganda:AReviewofLandTenureSystemsandApproachesforImprovingTenureSecurity”JournalofLandandRuralStudies,164,2016.19TheUgandaNationalLandPolicy,MinistryofLand,Housing,andUrbanDevelopment,2013,availableat:http://ulaug.org/files/downloads/The%20Uganda%20National%20Land%20Policy.pdf(accessed1March2018).20InterviewwithLamwocommunityleader,KitgumDistrict,10December2017

Landwasgivenbasedontheunderstandingthatnomonetarycompensationwouldbereceived,butinstead,communitieswillhaveaccesstoimprovedpublicservices.


Whilethepolicyframeworkiswellpositionedtosupportbothrefugeesandtheirrespectivehostcommunities, the local interpretation of these policies are rooted in the realities hostcommunities face in theirneed toaccessemployment,healthcare,educationandbasicsocialservices.Theseneedsarelargelythemotivatingfactorsforlocalcommunitiestoagreefortheirland to serveas refugee-asylumspaces.However, these expectationsprovedifficult tosatisfygiventheneedsofthelocalpopulation.Landownersdescribefeelingpressuredintogivinglandbydistrictofficialsbasedonthepromiseof development in their community. As confirmed by IRRI, land was given based on theunderstandingthatnomonetarycompensationwouldbereceived,butinstead,thatcommunitieswillhaveaccesstoimprovedpublicservices.Alandownerdescribed“thecontinuouswaitforthecentralgovernmenttogiveourchildreneducation,upgradeourhealthclinicandourrunningoutofARVmedication”ashisdecidingfactorstogiveland.21On the other hand, a community leader stated the need for better informed procedures inevaluatingthetypeofdevelopmentneededbystating:“Theapproachisnotright.Ifyouwanttobringdevelopmentintomycommunity,Iwanttoknowwhatkind.”22Hewentontoemphasisetheneedforcommunity-drivenconsultationswithimplementingpartnersandtheimportanceofidentifying the rightful beneficiaries entitled to receive support based on their day-to-dayrealitiesofsharingresourceswithrefugees.23HostCommunityPerspectivesonRefugeesThewillingnessofUgandanhostcommunitiestogivelandiscommonlydescribedbygovernmentofficialsasbeingmotivatedbycross-borderethnicandculturalconnectivityand the fact thatUgandanshavehistoricallybeenrefugeesintheregion.InthecaseoftheAcholicommunitywhoweresubjectedtolivinginIDPcampsduringtheLRArebellion,aLamwolocalgovernmentofficialreflectedonthewillingnesstogivelandbasedonthesharedexperienceofdisplacementandthe“spiritofbeinghuman”.24WhilethehospitalityofUgandanhostcommunitiesisthebackboneofthegovernment’sabilitytooperationaliseitsrefugeepolicies,overtgeneralisationsshouldbeavoidedbecausetheyfailtorecognisetheuniquechallengesfacedbyeachhostcommunity,andinthiscase,thesensitivitiesassociatedwiththeinclusionoftheirperspectiveonhowlandshouldbesecuredforrefugees.ThedistinctionsbetweenLamwoDistrictasawholeandthespecifichostcommunitieswhohavegiven land and immediately neighbour the refugee settlement, must be well defined whenevaluating appropriate humanitarian and development interventions meant to support bothlocalsandrefugees.Lamwohas fivemainentrypointsborderingSouthSudanandisasparselypopulateddistrictwith an estimated population of 137,785.Within it, there are 11 sub-counties and two towncouncils, ofwhich Palabek-Ogili and a portion of Palabek-Gem sub-counties host the current

21Interviewwithlandowner,Palabek-Ogilisub-county,11December201722InterviewwithLamwocommunityleader,KitgumDistrict,10December201723Ibid.24Interviewwithlocalgovernmentofficial,Palabek-Ogilisub-county,11December2017


refugee settlement. Land, which consists of approximately seven villages and an estimatedpopulationof16,000,wasallocatedforthesettlementcurrentlyhostingapproximately37,407SouthSudaneserefugees.25Community-drivenIntegrationofRefugeesAnattackinApril2017inPajok,SouthSudan(atownapproximately15kmfromtheUgandanborder), led to themass flightofSouthSudanesecivilians intoLamwoDistrict.26Prior to thisincident, communitymembersdescribed the steady arrival ofpredominantly South SudaneseAcholi refugees,whowerebeing integrated intobroaderlocalcommunities throughout thedistrictonthebasisofimmediate and extended family relationships and ethnicties.Communitymembers also shared thatprior to themassinflux into Lamwo, there were discussions betweencommunity leaders,whohavepoliticalties tothecentralgovernment,anddistrictandlocalgovernmentofficialstomobiliseforarefugeesettlementinLamwoDistrict.However,whenapproachedatthattime,thecommunitylargelyrefusedtogiveup their land and advocated instead to continue hosting refugees through ongoing localintegration.In other words, the prospect of hosting more refugees was not perceived, in and of itself,negativelygiventhefactthatitwasalreadyinmotionandfacilitatedbythehostcommunity.AsonelandownerinterviewedbyIRRIstated,“ourdaughtersaremarriedthere[Pajok]andwemustsupportthem”.27Rather,landownersexpresseddiscomforttowardarefugeesettlementapproachtohostingrefugeesandresentedhavinglanddemarcatedforthispurpose.WhenrecallingthelivingconditionsintheIDPcamps,anotherhostcommunitymemberstated,“[w]henwewereinIDPcamps,housesweredoortodoor,butrefugeeshaveplotsandthisismakingusworriedthatitisarealsettlement,thenamealoneisthreatening.”Regardless of the community’s push for local integration, the government went ahead andestablishedarefugeesettlement.WhenIRRIinquiredwhythecommunity’swishforintegrationwasnotsupported,itwasexplainedthatarefugeesettlementisneededinordertoscreenandregister refugees into the district.28 While this indeed is an important factor, Uganda hasexemplifieditsabilitytoaccommodaterefugeesoutsiderefugeesettlements,suchastheurbanrefugeecommunitiesinKampalaaswellasthoseresidingintownsinnorthernUgandasuchasPakelleinAdjumaniDistrict.Thereforeitwouldseemprudentforthecommunity’sviewstobeheededandpossiblealternativestosettlementstobegenuinelyconsidered.Thisservesthedualpurposeofnotonlyensuringgreaterunderstandingandacceptancebythehostcommunityof 25ReliefWeb“UgandaRefugeeResponse–SouthSudanSituation(16March2018)https://reliefweb.int/sites/reliefweb.int/files/resources/Weekly%20SSD%20Info-Graph%2016-03-18.pdf(accessed26March2018).26Reuters,“SouthSudanesetroopsbutcheredcivilians,shotchildren:refugees”,availableat:https://www.reuters.com/article/us-southsudan-unrest-uganda/south-sudanese-troops-butchered-civilians-shot-children-refugees-idUSKBN1771Y0(accessed24February2018).27Interviewwithlandowner,Palabek-Ogilisub-county,11December201728Interviewwithlocalgovernmentofficial,Palabek-Ogilisub-county,11December2017

Regardlessofthecommunity’spushforlocalintegration,thegovernmentwentaheadandestablishedarefugeesettlement.


the refugees, it also ensures that refugees are given the opportunity to enjoy freedom ofmovementasrecognisedunderUgandanlawandestablishtheirwell-beingamongbroaderhostcommunitiesandbeyondsettlements.ConclusionTheperspectivesreflectedbyhostcommunitymembersinUganda’sLamwoDistrict,andmorespecificallyinPalabek-Ogilisub-county,demonstrateanumberofissuesthathaveresultedinalackoftrustbetweenhostcommunitiesandtheGoU.TheseissuesspecificallyrelatetotheroleofhostcommunitiesasstakeholdersinUganda’srefugeeresponseandaretheresultofmultipleshortcomingsincluding:thelackoftransparencyintheacquisitionoflandfromhostcommunitiesforthepurposeofarefugeesettlement;thecommunities’lackofaccesstotheMoUdocumentunderwhichtheirlandisbeingoccupied;and,theGoU’sdecisiontoproceedwithasettlementbasedresponseasopposedtothecommunity’spursuitoflocalintegration.Certainly,alloftheseissues are rooted in the existing tensions between customary landowners and the centralgovernmentfollowingtheirreturnfromIDPcamps,andthechallengestheycontinuetofaceinsecuringtheirlandtenure.Uganda’srefugeepopulationisexpectedtoincreaseby400,000newarrivalsbytheendof2018,resulting inanestimated1.8millionrefugees,ofwhichanestimated300,000are likely tobeSouthSudanese.29Asallstakeholdersworktodeveloptheircapacityinsupportingrefugees,itisimperative that humanitarian and development interventions reflect the diverse needs ofUganda’s refugee-hosting communities. Both government and non-governmental actorsmustembrace their shared responsibility towards preserving the rights of host communities andpracticeflexibilityinadoptinggrassroots,community-drivenmethodsthatsupportrefugees.Itiscrucial forall interventions toberooted ingenuineconsultationswithhostcommunitiesandimplementedinamannerwhichupholdstheirrightsinregardstolandtenuresecurity.RecommendationsTotheGovernmentofUganda:

- Ensure landacquisition for refugee settlements complieswith theConstitution and iscarriedoutinatransparentmannerwhichincludesthefree,priorandinformedconsentoflandowners;

- Ensurecustomarylandowners,whogivelandforarefugeesettlement,aswellasthosewhoselandisbyeffect,incorporatedintoarefugeesettlement,receivecustomarylandtitles;

- Facilitate theproper andaccessibledocumentationof landboundariesand conditionsuponwhichlandisacquiredforarefugeesettlement;

- Prioritisecommunity-driven, localintegrationmechanismsasadurablesolutionandagenuinealternativetosettlements,inordertobetterpromoterefugeeself-relianceandresilience.

29UNHCRContingencyPlanningFigures,Inter-AgencyCoordination,Kampala,23March2018


ToallstakeholdersintheUgandarefugeeresponseincludingdonors,UNHCR,humanitariananddevelopmentpartners:

- Ensurethatdistrict-levelengagementisrootedinawell-foundedunderstandingofwhotherefugee-hostingcommunitieswithinthedistrictare,andmorespecifically,thelegalrightsofthecustomarylandownerswhoselandisenablingtherefugeeresponse;

- Integratealandrightsspecialist into therefugeesettlementplanningphase toensuresupportlawfulacquisitionsoflandandensuretheconsentoflandowners;

- Carryoutactivities inamannerwhich supports trust-buildingmechanismswith localcommunitieswhose landhostsrefugees, inaddition toemployingconflictprevention/resolutionsmethodsinordertomitigatelandtensions,amongotherissues;

- Astheemergencyphase innorthernUganda’srefugeeresponsestabilises,re-evaluateinterventionsandimplementprogrammingwhichreflectstheneedsofhostcommunities,andsupportspositivesocialcohesionsamonghostcommunitiesandtheirgovernment,aswellashostcommunitiesandrefugeepopulations.

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