Implementing the Grand Bargain in EU Humanitarian Aid: An Analysis of DG ECHO's Response Since 2016

• Název práce v češtině: Implementace "Grand Bargain" v oblasti humanitární pomoci EU: Analýza reakce GŘ ECHO od roku 2016
• Název v anglickém jazyce: Implementing the Grand Bargain in EU Humanitarian Aid: An Analysis of DG ECHO's Response Since 2016
• Akademický rok vypsání: 2022/2023
• Typ práce: diplomová práce
• Jazyk práce: angličtina
• Ústav: Katedra bezpečnostních studií (23-KBS)
• Vedoucí / školitel: prof. Mgr. Oldřich Bureš, Ph.D., M.A.
• Řešitel: skrytý - zadáno vedoucím/školitelem
• Datum přihlášení: 15.06.2023
• Datum zadání: 15.06.2023

Předběžná náplň práce v anglickém jazyce

Motivation

In 2016, the Directorate-General for European Civil Protection and Humanitarian Aid Operations (DG ECHO) was one of the 65 signatories of the Grand Bargain, a set of commitments made by donors and aid organisations to improve the efficiency and effectiveness of humanitarian aid. Five years later, the Grand Bargain 2.0 was launched as an updated set of commitments and actions. In this MA thesis, I intend to evaluate how the DG ECHO responded to the Grand Bargain in 2016. I hereby seek to unravel neo-colonial power dynamics in present European humanitarian assistance by applying the decolonial theory. The objective of this thesis is to evaluate whether the Grand Bargain has brought about significant changes in the way the European Union approaches humanitarianism, or whether it has merely provided a framework for existing efforts. The overarching objective of this research is to contribute to the ongoing debate on decolonizing humanitarian aid and to explore ways in which the humanitarian system can be reimagined to better reflect the needs and priorities of communities affected by crises.

In 2016, the World Humanitarian Summit highlighted the significance of localising humanitarian action whenever possible and ensuring international involvement when necessary (Barbelet, 2019). In response to this call, the Grand Bargain emerged as an ambitious initiative aimed at improving humanitarian assistance. It focused on key principles such as cash transfers, support for local organisations, and the harmonisation of reporting. Despite some progress in these areas, persistent challenges remain, including unmet targets related to funding quality, the inclusion of affected populations, and the establishment of common standards for transparency (Metcalfe-Hough et al., 2021). More recently, additional initiatives such as the Coalition for Racial and Ethnic Equality in Development (CREED) based in the US and the Pledge for Change have been introduced. These initiatives aim to foster equitable partnerships, promote authentic storytelling devoid of the "white gaze" and address power imbalances (Alexander, 2022). They strive to go beyond the Charter for Change and the Grand Bargain, which Alexander further criticised for not being sufficiently "radical" in their efforts to shift power dynamics towards actors in the Global South.

Research Question

To what extent has the Directorate-General for European Civil Protection and Humanitarian Aid Operations (DG ECHO) implemented the commitments of the Grand Bargain in 2016, and what impact has it had on the European Union's approach to humanitarianism?

1. Literature Review
Despite the importance of the Directorate-General for European Civil Protection and Humanitarian Aid Operations (DG ECHO), little attention has been given to its specific role in implementing and/or addressing the Grand Bargain principles. This literature review examines the literature on recent trends in European humanitarian aid concerning the diversification of the institutional framework, the shift of paradigm and European narrative when it comes to humanitarian aid.
The institutional framework of EU humanitarian aid has experienced a significant diversification in recent years. Traditionally, the Directorate-General for European Civil Protection and Humanitarian Aid Operations (DG ECHO) played a central role in coordinating and implementing EU humanitarian assistance. However, the evolving nature of humanitarian crises and the recognition of the need for a more comprehensive response have led to the involvement of various actors beyond DG ECHO (Orbie et al., 2014). This diversification includes the active participation of institutions such as the European Commission, the European External Action Service (EEAS), and the European Parliament, among others (Orbie et al., 2014). It also appears that the European Union (EU) has increasingly relied on non-governmental organisations (NGOs). Empirical investigations have shown a growing tendency from the EU to cooperate with NGOs and delegate executive functions to them, recognizing the need for a broader set of tools, mechanisms, and competencies (Irrera, 2017). NGOs often have a direct presence and grassroots networks in the affected areas, allowing them to access hard-to-reach populations and provide targeted assistance (Barbelet, 2019).

The diversification of the institutional framework is also driven by the blurring of boundaries between humanitarian and development interventions. The concept of "new humanitarianism" has emerged in the literature, emphasising the interconnectedness between short-term relief efforts and long-term development goals (Van Veen et al., 2021). This shift in approach has led to the integration of humanitarian objectives within a wider security and development framework (Orbie et al., 2014; Van Veen et al., 2021). Orbie et al. (2014) draw attention to the 1996 Council Regulation on humanitarian aid, which established a legal framework for the development of humanitarian aid policy within the European Community, now known as the European Union. While humanitarian aid was initially presented as driven by the humanitarian imperative and divorced from political considerations, the authors highlight that EU's humanitarian aid became intertwined with their foreign policy objectives until the late 1990s. While concerns about the perceived non-political nature of DG ECHO and the incorporation of humanitarian objectives into a broader security framework, as indicated by Van Veen et al. (2021), exist, other authors, such as Freire et al., present a differing perspective. They argue that despite facing internal limitations and challenges, DG ECHO has effectively expanded its role and reputation, garnering legitimacy and recognition as a neutral actor in humanitarian crises.
Beyond a shift of approach, a shift of narrative has also been observed. The EU has experienced a narrative shift in its humanitarian aid approach, with the emergence of human security as a potential operational framework. This approach emphasises the security of individuals and communities and aligns with the EU's efforts to overcome a history of war and imperialism (Kaldor et al., 2007). At the same time, the influence of colonial legacy on European decisions for or against military interventions in Africa challenges traditional assumptions and draws attention to evolving dynamics (Gegout, 2018). According to Gegout, this response can be attributed to factors such as the absence of strategic and economic interests, reluctance to involve in conflicts within former colonies of other European states, and Eurocentric assumptions that view conflicts in Africa as normal events not requiring intervention (Gegout, 2018). Gegout's theory of European intervention, influenced by realism and post-colonialism, challenges the views of liberals and constructivists who primarily attribute interventions to the principle of "responsibility to protect" (Gegout, 2018).

This literature review has explored the diversification of the institutional framework of European humanitarian aid, the integration of humanitarian objectives within a broader security and development framework, and the narrative shift in the European Union's approach to humanitarian assistance. However, there remains a research gap in understanding the specific role of the Directorate-General for European Civil Protection and Humanitarian Aid Operations (DG ECHO) in implementing the Grand Bargain commitments and its impact on the European Union's humanitarian practices. Further research is needed to assess the extent of DG ECHO's implementation of the Grand Bargain and its implications for decolonizing humanitarian aid and promoting more inclusive and equitable approaches.

Theoretical Framework

This research will draw on decolonial theory to analyse the power dynamics and structural barriers in European humanitarian interventions in conflict-affected contexts. Decolonial theory emphasises the need to decenter Western epistemologies and to acknowledge the ongoing impacts of colonialism on global power relations. It provides a critical lens for analysing the dominant discourse that portrays European actors as neutral and objective, highlighting the importance of centering the experiences and knowledge of marginalised communities.
In decolonial theories, the nation-state model is usually considered as a product of European modernity. According to Walter D. Mignolo, the field of International Relations has been invented to legitimise arrangements among sovereign states and expropriate territories and thus remains a colonialist discipline. Two schools have to be considered. On the one hand, some scholars such as Christian N. Okeke, Anthony Angie, Robbie Shiliam consider that the emergence of decolonial approaches thereby pertains to the rubric of decolonizing International Relations. Those works mainly consider IR from the perspective of colonial legacies (Woons & Weier, 2017, p.21). Radical decolonial views on the other hand argue that IR will no longer be necessary because coloniality would be over, they argue to the end of the nation-state as the form of governance. According to Blaney and Tickner, the International Relations as a field has not been dealing enough with different world politics (2017). They further argue that the calls pluralising International Relations “fall short of charting the moves necessary to undue the production of a colonial one-word world” (Blaney & Tickner, 2017, p.18). The discussion about how to overcome the colonial legacies of international relations have been increasingly discussed in the past decades (Tucker, 2018). The calls alone are yet described as not sufficient. Blaney and Tickner rather advocate for a transformative approach that would restructure the entire discipline of international relations.

Anibal Quijano sees colonialism through the lenses of the structure of domination and exploitation. He further argues that the coloniality of power continues shaping globalisation relations and thereby increases all kinds of existing hierarchies. The concept of Eurocentrism can be considered in the context of humanitarian aid. According to Quijano and Ennis, Eurocentrism is based on the “idea of the history of human civilization as a trajectory that departed from a state of nature and culminated in Europe” as well as “a view of the differences between Europe and non-Europe as natural (racial) differences and not consequences of history of power” (Quijano & Ennis, 2000, p.542). The authors further argue that Eurocentric biases highly influence strategies, priorities as well as decision-making processes of international organisation (Quijano & Ennis, 2000).

Methodology

This study aims to assess the progress made by the European Civil Protection and Humanitarian Aid Operations (ECHO) in implementing the Grand Bargain commitments since 2016. To achieve this, the study will analyse the eight workstreams established to fulfil the Grand Bargain commitments individually.
1. Greater transparency
2. More support and funding tools to local and national responders
3. Increase the use and coordination of cash-based programming
4. Reduce duplication and management costs with periodic functional reviews
5. Improve joint and impartial needs assessments
6. A Participation Revolution: include people receiving aid in making the decisions that affect their lives
7. Increase collaborative humanitarian multi-year planning and funding & reduce the earmarking of donor contributions
8. Harmonise and simplify reporting requirements

A mixed-methods approach will be used to analyse to what extent those commitments have been implemented. By evaluating each workstream individually, this study aims to provide insights into the factors that have contributed to ECHO's successes and challenges in implementing the Grand Bargain commitments. To accomplish this, the data from the European Emergency Disaster Response Information System (EDRIS) database will be used. The EDRIS database lists annual contributions made by the Member States' Ministries of Foreign Affairs and the ECHO for the delivery of humanitarian assistance to people affected by natural or man-made disasters worldwide. In this thesis, the EDRIC data will enable an analysis of ECHO's funding allocation and partnership practices from 2016 to 2023. Furthermore, relevant documents will be reviewed to analyze EU civil protection and humanitarian aid policies, including guidelines such as Guidance to partners funded by ECHO (2017), Grand Bargain Cash Workstream Workshop Report (2017), EU Cash Compendium (2019), The State of the World's Cash (2020), and DG ECHO Thematic Policy Document No 3 Cash Transfers (2022). Additionally, key publications such as "Promoting Equitable Partnerships with Local responders in Humanitarian Settings" (2023) and "Communication from the Commission to the European Parliament and the Council on the EU's humanitarian action: new challenges, same principles" (2021) will be considered.

This review will enable the identification of any changes or shifts in ECHO's approach over the years, providing insights into the effectiveness of ECHO's efforts and areas for improvement. In addition to that, this thesis will also incorporate interviews with key stakeholders to gain a deeper understanding of ECHO's implementation of the Grand Bargain commitments. Key stakeholders may include representatives from ECHO, partner organisations, and local/national responders. These interviews will be conducted using a semi-structured approach and will focus on topics such as ECHO's partnership practices, decision-making processes, and challenges faced in implementing the Grand Bargain commitments.

Suggested Thesis Structure
1. Introduction
2. Historical Overview of European Humanitarian Assistance
3. Defining the role of the DG ECHO
4. Research question, Research gap and relevance
5. Decolonial Theory in the context of the European Humanitarian Assistance
6. Methodology
7. Empirical Findings
8. Discussion of Empirical Findings
9. From Grand Bargain to Grand Bargain 2.0 - towards a decolonised humanitarian aid?
10. Conclusions