ICVA Localisation Baseline Report: Measuring localisation in Iraq’s humanitarian and development landscape

For over forty years, Iraq has been a focal point for international humanitarian response, driven by recurring cycles of war, displacement, and political instability. From the Iran-Iraq War in the 1980s to the US-led invasion in 2003 and the rise of Daesh in 2014, Iraq has endured continuous emergencies. These crises have triggered multiple waves of displacement, most notably between 2014 and 2017, when nearly six million Iraqis — around 16% of the population — were uprooted by the conflict with Daesh.

In response, the humanitarian infrastructure in Iraq has expanded significantly. International NGOs, UN agencies, and donors have poured into the country, often partnering with Iraqi actors but rarely placing them in positions of real leadership or decision-making. Despite decades of external aid and a vibrant local civil society — including a surge in local NGO activity post-2003 — progress toward localisation has been limited. The humanitarian system in Iraq remains largely internationally driven.

Purpose of the report

This report shows the status of localisation in Iraq across the seven domains of localisation. It uses the Localisation Measurement Framework and Tools developed by HAG and PIANGO. The tools have been adapted to Iraq’s unique context. The study provides benchmarks for tracking progress and identifies challenges and opportunities.

Key Findings

Despite decades of humanitarian response in Iraq, the report finds that overall progress towards localisation is low, as summarised below:

Partnerships: Some evidence

• Partnerships between international actors and local/national organisations have been crucial to Iraq’s humanitarian response, especially during emergencies.
• International actors depended on local and national organisations for cultural insights and access to communities.
• Local and national organisations relied on international partners for resources, learning, and support to meet challenges.
• Partnerships usually reflect long-standing relationships and a track record of meeting donor requirements.
• While international actors are still the primary decision-makers, local perspectives are being acknowledged.

Leadership: Limited Evidence

• In emergencies, international actors are still viewed as the key decision-makers.
• Local and national organisations, along with governments, are seen to have a supporting role.
• While international organisations are increasingly appointing Iraqis to key positions, many local actors do not see this as genuine localisation.
• They argue that placing Iraqis within international structures often limits them to implementation roles rather than making decisions and setting the direction.

Coordination: Limited Evidence

• The 2023 closure of key structures like the NGO Coordination Committee for Iraq (NCCI) and the deactivation of the cluster system have weakened these efforts.
• While local networks continue to function, they tend to involve only a limited number of NGOs, and coordination remains dominated by international actors.
• The dominance of English in coordination meetings also presents a barrier to full integration of local actors.

Participation: Limited Evidence

• Organisations report relatively high levels of community involvement through consultations, needs assessments, and the formation of community committees.
• Study participants suggest that the engagement is often weak and ineffective, with many organisations more focused on meeting donor expectations than genuinely engaging with local communities.
• Smaller organisations tend to have stronger community ties, while larger organisations often rely on less effective, sporadic mechanisms for participation.

Policy influence: Limited Evidence

• Local actors are seen as key stakeholders. However, they still find it hard to influence donor agendas and national policies effectively.
• Some organisations raise important issues with the government, but turning this influence into real change is difficult.
• Most local and national organisations provide some inputs into policy development, but few significantly shape humanitarian and development strategies.

Capacity: Limited Evidence

• Both international and local partners define capacity needs, but internationals mainly drive the process.
• Progress is limited to a small number of organisations.
• Ensuring long-term sustainability remains a key challenge.
• Local and national organisations often find it hard to keep services running when international support stops. This happens because they rely on project-based approaches for capacity building.
• While the legislation for NGOs remains stable, NGOs face access restrictions and a shrinking space to discuss key issues, particularly gender.

Funding: Limited Evidence

• Local/national organisations struggle to directly access international funding. This restricts their ability to lead long-term recovery and development efforts.
• As Iraq transitions from emergency response to development, the reduction in humanitarian funding creates challenges.
• Recovery and peacebuilding initiatives need ongoing financial support. They are especially at risk as there are few other funding sources available.
• Study participants stressed the need for a legal framework for local funding and a National Peace & Recovery Fund.

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