Development cooperation policymakers are increasingly keen to give refugees a voice in decision-making processes and platforms. But what does meaningful participation look like? And how can development actors best support refugees, particularly young people, to speak out?

When youth advocate Haram Dar came to Germany with his parents as a four-year-old refugee from Pakistan, he spoke no German and was unable to make himself understood. ‘It was very difficult. I was unable to say what I needed or defend myself,’ he says. The experience made a lasting impression and as he grew up, he decided to speak out on behalf of other people who lacked a voice in society, particularly young people.

He says:

When you make decisions about other people, for example young people, it’s important that the people who are affected have a voice. Society needs to talk with young people, not just about them.

Haram Dar, Member of the BMZ Youth Advisory Council

Now aged 20 and in his final year of high school, Haram Dar sought opportunities to fulfil this ambition, becoming a member of the youth parliament of his hometown Erlangen, a student representative of the state of Bavaria (representing 1.8m students), and a member of the Youth Council of UNICEF Germany, a position he held until 2022. Most recently, he was asked to join the Youth Advisory Council of the German Federal Ministry for Economic Development and Cooperation (BMZ). This appointment led to an invitation to accompany the German delegation to the Global Refugee Forum (GRF) in December 2023. The GRF is the world’s largest international gathering on refugees and gives states and stakeholders an opportunity to highlight the progress they have made in implementing the Global Compact on Refugees, share good practice and make pledges to commit to the challenges and opportunities ahead.

Increased refugee participation makes programmes more effective

Dr. Elke Löbel, Deputy Director General and Commissioner for Refugee Policy at BMZ, says the principle of ‘nothing about us without us’ was central to how the German delegation to the GRF sought to involve refugees.

‘All too often refugees are seen as victims or passive recipients of support. However, this perspective fails to acknowledge their multifaceted identities, resilience and self-efficacy. Displaced persons possess a profound understanding of their own needs and have the capacity to develop effective solutions for themselves, their families, and their communities. This is particularly true for young refugees, whose unique lived experiences are often overlooked,’ she says.

‘Like others in the development space, we believe it is key to transform this dynamic by fostering meaningful participation in our policy processes and events.’

Dr. Elke Löbel adds:

Meaningful refugee participation leverages firsthand knowledge and experience, leading to more sustainable and impactful solutions.

Dr. Elke Löbel, Deputy Director General and Commissioner for Refugee Policy, BMZ

‘By involving refugees in the decisions that affect their lives, decision-making becomes better tailored to their actual needs. This, in turn, enhances refugees’ self-reliance and their ability to rebuild their own lives,’ she says.

The Special Initiative “Displaced Persons and Host Countries” and the ‘3Rs’ of Feminist Development Policy

The Special Initiative “Displaced Persons and Host Countries” by the BMZ seeks to meet the needs of both displaced people and the local populations of the countries hosting them. In particular, it aims to make sure that views and experiences of displaced women and girls are represented in policy making and planning discussions and that they have the opportunity to speak at events, representing their own experiences rather than being talked about by others. For example, through its Action Network on Forced Displacement – Women as Agents of Change, the BMZ is increasing self-representation by displaced women, strengthening their rights and opportunities for social, economic and political participation. It was founded after a commitment made by the ministry at the first GRF in 2019. Four years later, the Action Network is not only established, but presented their own pledge at the GRF to enhance women’s leadership in displacement.

Making refugee participation meaningful

So how can policymakers and development cooperation practitioners not just involve refugees in their planning and decision-making but also ensure that this participation is meaningful? For Dr. Elke Löbel, the key is ensuring that refugees have the opportunity not just to attend global events like the GRF, but to play an active role, sharing their insights.

Haram Dar agrees, saying: ‘It’s very frustrating for young people when there are topics you want to talk about and people just take a photo of you and then leave.’ He adds:

A photo opportunity is not meaningful participation.

Haram Dar, Member of the BMZ Youth Advisory Council

For example, to ensure that his voice at the GRF was heard, Svenja Schulze, Federal Minister for Economic Cooperation and Development invited Haram Dar alongside members of the Action Network of Forced Displacement to take part in a roundtable conversation to discuss meaningful refugee participation. She also invited him to speak alongside her in the closing statement at the official high level side event on education. This gave him the opportunity to talk about his own experience and how education had enabled many opportunities for him in Germany.

Sole youth moderator at the European Humanitarian Forum

Similarly, when the BMZ invited another youth advocate, Rozy Kassab, to attend the 2023 European Humanitarian Forum (EHF), they asked her to be the event’s sole youth moderator, steering a discussion about the provision of mental health and psychosocial support (MHPSS) to displaced people. Every year, the EHF, is organised by the European Commission’s Directorate-General for European Civil Protection and Humanitarian Aid (DG ECHO) and the country holding the Presidency of the Council of the EU. It brings together EU political decision-makers, international actors, donors, and representatives from civil society to discuss how to meet increased humanitarian needs around the world through closer coordination and complementary programming. 

Young people are often side-lined

Rozy Kassab says the opportunity to attend as a moderator gave her the chance to demonstrate that young people have the capacity to listen attentively and steer complex conversations as well as participate as a panelist. ‘Despite our generation often being the most affected, our voices in mental health discussions are frequently side-lined,’ she says.

Putting young people on the side when it comes to conversations about our mental health doesn’t make sense. It’s like trying to give medicine to people without asking what their problem is.

Rozy Kassab, Youth Advocate

Rozy Kassab’s interest in mental health began as a teenager in Syria during the country’s civil war. ‘I saw the trauma that people were suffering because of everything they were going through and felt I needed to do something about it,’ she said.

When she and her family fled to Sweden in 2018, she joined in various activities organised by War Child Sweden and eventually became their youth ambassador. This led to an invitation to join the youth advisory committee at The MHPSS Collaborative, a global hub for mental health and psychosocial support research, innovation, learning and advocacy. Her work as a youth advocate for them and other organisations brought her to the attention of the organisers as it discussed ways to increase meaningful participation by refugees and displaced people in its development of mental health support. At the time of the EHF 2024, Rozy was moderating sessions at the 2^nd Nordic Conference on MHPSS in Humanitarian Settings in Malmö. 

The case for involving refugees in the planning and delivery of mental health support alongside other emergency support is strong. According to a 2019 World Health Organization report, a fifth of the population living in war zones suffers from some form of mental illness, including depression, anxiety, and post-traumatic stress disorder. And according to UNHCR’s latest Global Trends report, at the end of 2023, 117.3 million people worldwide were forcibly displaced as a result of persecution, conflict, violence, human rights violations and other events. UNHCR estimates that this number is likely to have exceeded 120 million by April 2024.

Learnings in creating meaningful refugee participation

As Minister Svenja Schulze acknowledged after a GRF roundtable conversation about meaningful refugee participation,

When we recognize the expertise of displaced persons, international policy processes will become more inclusive, participatory and sustainable.

Svenja Schulze, Minister for Economic Cooperation and Development (BMZ)

However, this requires changes in the donor and policy system too. ‘One of our biggest learnings is that you need to have a fundamental shift in your mindset when you want to have inclusive policies. You need to think about it from the start and see where there are good entry points to include refugee voices and where events can be led by refugees,’ says Clara Graulich, GIZ advisor for the BMZ.

‘Because it is work, we need to pay refugee experts and not assume they will share their expertise for free.’

She adds: ‘Yes, meaningful refugee participation may take more time. You may have to make your processes more accessible but if you want to do it and are prepared to think outside the box, it’s possible.’

Open the door and give us a seat at the table

Meanwhile, for youth advocates Haram Dar and Rozy Kassab, the key to improved youth refugee participation is a matter of trusting young people and offering them a platform to share their experiences. Haram Dar says: ‘Just ask young people “What do you need and how can we help you get involved?”’

Rozy Kassab agrees:

My generation is ready to step up, learn, and lead. If you trust us, we will show you that we are responsible, mature and can rise to the challenge.

Rozy Kassab, Youth Advocate

She adds, ‘Our voices need to be heard and our experiences acknowledged. So, open the doors to young people, take away the tables, and support us with the capacity to lead and answer the questions that relate to our lives.’

Zita Adamson
August 2024