Focus Group Discussions with Affected Communities in Egypt
Main Findings
Background and Methodology
In preparation for the World Humanitarian Summit (WHS) regional consultation for the Middle East and North
Africa (MENA), focus group discussions (FDGs) were held in Egypt in November/December 2014 and January 2015
with people affected by humanitarian crises. The discussions were co-facilitated by the UN Office for the
Coordination of Humanitarian Affairs Regional Office for MENA (OCHA ROMENA) and the International
Organization for Migration Regional Office (IOM) in Egypt. IOM and National NGOs working closely with affected
people, namely the Office of the Syrian Diaspora in Egypt and the League of Syrian Women hosted the
discussions in their premises. The groups consisted of youth, women and community leaders from the Syrian,
Somali, Sudanese, Ethiopian and Eritrean refugee communities.
The sessions were structured in three parts: first, the WHS global and regional process was introduced; second,
participants discussed their experiences and views of humanitarian action, guided by a ‘listening questionnaire’
developed with the support of a WHS advisory group on Communicating with Communities; and third,
participants were asked to complete a questionnaire1 to complement the findings of the discussion. A total of 69
people were consulted and 59 respondents completed the questionnaire, of which 56% reported to have
received humanitarian assistance in Egypt. This report represents a summary of both the views expressed during
the discussions as well as the survey responses.
Group
Target group
Age
Gender
Location and date
1
Syrian – Men Community Leaders
+26
M
Cairo, 23 Nov 2014
2
Syrian – Women Community Leaders
+26
F
Cairo, 23 Nov 2014
3
Syrian – Youth
18-30
M&F
Cairo, 23 Nov 2014
4
Syrian – Women Community Leaders
+26
F
Cairo, 8 Dec 2014
5
Syrian – Men Community Leaders
+26
M
Cairo, 8 Dec 2014
6
Syrian – Youth
18-30
M&F
Cairo, 8 Dec 2014
7
Syrian – Women
+26
F
Cairo, 11 Dec 2014
8
Syrian – Men
+26
M
Cairo, 11 Dec 2014
1
On a 10-point scale where 10=high and 1=low, participants were asked to fill out a questionnaire that included questions on access to
humanitarian services, priority needs and evaluation of performance of humanitarian actors.
1
9
Syrian – Youth
10
Syrian, Somali, Sudanese, Ethiopian and
Eritrean – Youth and Community Leaders
18-30
M&F
Cairo, 11 Dec 2014
+18
M&F
Cairo, 13 Jan 2015
Main Findings
The following issues were identified as the most pressing priorities by the people consulted in Egypt:
Protection of Civilians

For refugees in Egypt, protection includes registration and issuing UNHCR’s yellow ID-card and protection
from violations such as discrimination, exploitation, detention and persecution.

The UNHCR Handbook on Operational Standards for Registration and Documentation (2007) links refugee
registration with protection. Many refugees
“For us, refugee identification cards are documents that
stressed the importance of refugee identification help preserve rights.”
cards for them. However, not all of them believed
Female Syrian refugee, Cairo
that they were enough for providing protection. On
some occasions, the cards are not immediately recognized by state authorities as a valid document.
Moreover, refugees reported that holding a registration card can cause additional problems for Syrian
refugees should they return to their home country, as many believe that it could be viewed as evidence
of opposition to the Syrian government. This often leads to hesitation from some refugees in obtaining
the cards.

Female refugees have specific protection concerns and worries that are different to those of men. For
Syrian women, the threat of sexual harassment was identified as a key protection concern. While for
Syrian men, protection concerns could include targeted violence and incidents of theft. A participant
cited an attacker’s threat: “Every time I see a Syrian, I will do this to him”, referring to the reason behind
host community’s violence against Syrians.

The survey results reaffirmed the refugees’ general feelings of lack of protection. On average, refugees
rated the extent to which they feel protected in their host countries to be 3 out of 10. Additionally, safety
and security were ranked among the three top needs for the Syrian and African refugees in Egypt.
Humanitarian Access

One of the most significant problems that hinder refugees’ access to humanitarian aid and services in
Egypt is lack of information. In many discussions, Syrian and African refugees stated that they do not
know what UN agencies, international or national aid organizations are operating in Egypt, and that they
do not know whom to approach to receive information about aid.
2

Additionally, there is lack of information on the kinds of agencies that respond to different needs (i.e.
shelter, food, healthcare, financial support, etc.). In most discussions, refugees would cite UNHCR as a
major source of assistance when asked if they received humanitarian aid, while a few mentioned INGOs.

The remoteness of aid organizations to refugee populations was cited as an access challenge by Syrian
refugees. They believed that organizations were not exerting sufficient efforts to provide aid close to
where they reside.

Syrians also believed that there was substantial corruption and favouritism in the distribution and
targeting of beneficiaries in humanitarian assistance, especially – according to participants – in refugee
resettlement services.

Participants mentioned that they face significant barriers to services that they are allowed to access by
Egyptian law (i.e. education, employment, health care, etc.). This leads to “Syrians being exploited by all”
as one refugee put it.

Survey results indicate that 54% of Syrian refugees surveyed received assistance from humanitarian
organizations while in Egypt.
Vulnerability, Emergency Preparedness and Resilience

When asked about the importance of preparedness and resilience, Syrian participants stated that they
hold significant value. Two key points were repeatedly made on this issue: The first being that
humanitarian organizations should invest more in livelihood activities to help refugees reach “economic
security” as one community leader put it, and the second being the importance of addressing the root
causes of conflict from the beginning, instead of investing those efforts later on in resilience activities.
Responding to Protracted Crises

Syrian refugees believe that the aid they are receiving since the crisis broke out decreased over time, and
complained that attention of the humanitarian
“We as a nation like to work.”
community is quickly and frequently diverted
Syrian refugee, Cairo
towards newer and more recent crises.

The aid they usually receive does not respond to their long-term needs and does not allow them to live in
an independent and self-sufficient manner. Syrian refugees felt that the aid being provided did not
capitalize on the sense of agency and initiative that is very prominent in their community.
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Principles of Humanitarian Action

Syrian respondents believed that humanitarian
principles and International Humanitarian Law (IHL)
were grossly violated by parties to conflict in Syria,
with many calling for the enactment of IHL to hold
perpetrators accountable.
“If they want, I can impoverish myself to access aid.”
Syrian refugee, Cairo

In Syria, humanitarian work is inherently politicized. Supporting humanitarian organizations is considered
a terrorist act and receiving aid from one may imply a certain political affiliation. This negative perception
impedes aid neutrality and shows a need to separate the political from the humanitarian.

Many participants underlined the lack of impartiality in aid provision in their host state as well. Some
believed they were judged based on their appearance and on where they live in their new host state
when accessing aid, impacting their eligibility for assistance as well as the amount and type of
humanitarian assistance received.
Relationship between International Humanitarian Actors and Domestic Institutions

On this issue, participants believed that there is little coordination between international actors and
national and local institutions in Egypt. They felt that the UN has the primary role to play in liaising with
national governments and local authorities with regards to legal and institutional frameworks regulating
refugee affairs.

There were repeated calls by respondents to increase the power of the UN and its agencies vis-à-vis the
national government. This could be understood as having increased influence and leverage in advancing
refugees’ status in host states.

The survey results reported that 56% of the affected populations consulted believe the government bears
primary responsibility for responding in times of emergencies, while 63% believed that UN organizations
are the most effective entities in meeting people’s needs.
Humanitarian Coordination

There is a lack of coordination between humanitarian organizations in aid provision and delivery. There
are no known coordination mechanisms between the agencies operating in Egypt on the type or amount
of aid provided to each family. As a result, some families who are in dire need become excluded from
receiving aid.
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
Refugees underlined the lack of accountability and oversight mechanisms between UN agencies and
national organizations, which results in failure to meet the needs of Syrians. Refugees cited examples of
being denied health care in some hospitals and local clinics they were referred to by UN agencies.
Engagement with Affected Communities

Respondents underlined the lack of mechanisms for feedback, inquiry or complaint concerning the aid
and services received from humanitarian actors. Also, due to the lack of known, clear and enforceable
standards for accountability to affected people, refugees felt that voicing their complaints would not
make a difference, as they felt that their opinions ultimately hold no weight.

Moreover, the reported lack of transparency in
humanitarian aid usually results in affected people
not knowing what aid they were entitled to and on
which criteria their needs were being met.
“Whenever I go to UNHCR for assistance, the security
does not allow me to talk to the staff and ask me to call
the hotline. But when I call, the hotline is either busy or
switched off.”
Somali refugee, Cairo

As for dignity, a number of participants felt that they were not treated in a way that preserved their
dignity and respect by humanitarian organizations. The survey results confirm these findings. On average,
Syrians rated the extent to which aid groups treat them and their communities with dignity and respect
to be 3.98 out of 10, with a lower rating among females.

In addition, refugees felt that some aid workers were sometimes “inadequate” or “lacking skill”.
Documents were mishandled or confused, affecting a refugee’s chance of receiving aid.

In contrast, there was some positive feedback from some refugees regarding the way humanitarian
actors dealt with them. Refugees mentioned a number of INGOs and local organizations whom they felt
treated them with a sense of humanity and with sympathy for their situation.

The professionalism of organizations received poor ratings. On average, refugees believed that aid groups
did not maintain professional conduct towards people (average rating 3.68 out of 10). Participants felt
that they did not have a say in the type of aid they received. Many stated that some of the aid programs
provided by international organizations did not meet their most urgent needs, or was replicated several
times by several agencies.

Syrian refugees rated the extent to which aid agencies consider people’s opinion to be 2 out of 10, which
is lower than African refugees’ rating at 3.7 out of 10. As for affected people’s ability to contact aid
groups to give them their opinion and feedback, it was rated 3 out of 10 for both Syrian and African
refugees in Egypt.
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Migration

For Syrian refugees, migration at sea is both a great temptation and a great risk. Many aspire to migrate
to Europe, where they believe there are better opportunities and a better quality of life.

Due to the long and “non-transparent” nature of resettlement services, and the difficult living conditions
in Egypt, many seek to migrate illegally to Europe by sea. “They push you to throw yourself in the water,
you are dead anyway!” was a statement echoed by different Syrian refugees in Egypt. One participant
from the women’s group also recounted the story of how she returned from sea after venturing out for
an unsuccessful five-hour trip with her family to Europe, before eventually deciding to go back to shore.

Participants recounted incidents of intransigence by the Syrian embassy in the renewal of travel
documents, and the inability of the Egyptian government to provide alternatives for Syrians. The pledges
of burden sharing in hosting refugees by Western countries and other countries from the region were
seen as insincere, forcing refugees to consider illegal migration hoping for a better future.

The increasing attempts at illegal migration also resulted in an increased number of Syrians being
detained in Egyptian prisons and detention centres. One woman recounted her husband’s imprisonment
in Alexandria after being accused of fleeing Egypt illegally. Survey results revealed that Syrian refugees
listed migration options, resettlement, and coexistence with the host community amongst their “other
priority needs”.
Role of Media and Youth

There was strong consensus amongst Syrian refugees that their situation in Egypt was heavily affected by
the media coverage of domestic political events, especially after the political changes that occurred on 30
June, 2013.

Following these events, Syrians were accused of having political affiliations with Egyptian parties.
Incidents of verbal and sexual harassment, assault, and physical harm increased. Syrian students in public
schools have become particularly vulnerable to attacks from classmates and sometimes from teachers.

As for the role of youth, many of the youth respondents were involved in humanitarian assistance inside
Syria following the eruption of the conflict. Many stated that humanitarian workers operated in a
restrictive political environment and risked their lives regularly to serve people in need.

Youth participants were keen to continue volunteering to serve local communities in Egypt as a way to
foster coexistence in the host state.
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Relationship with Host State

With the onset of the conflict in 2011, the influx of Syrian refugees into many governorates across Egypt
was initially well received, according to respondents, who recounted instances of solidarity from Egyptian
counterparts.

The political changes in Egypt affected the status of refugees and strained relations with host
communities. In this regard, Syrians cited the absence of the role of UN agencies and INGOs in helping to
integrate them into Egyptian society.

As for refugee rights, Syrians believe that their rights are not upheld, citing the insufficient institutional
commitment to refugee integration and cultural awareness as a main cause. Derogatory behaviour
towards Syrians is also common in national authorities, where they believe they are treated as “lower”
class citizens.

On education and employment, Syrians feel that there is little support. Procedures of enrolment are not
made clear, and the existing institutional and regulatory frameworks for education hinder Syrian
students’ access to education.

The same occurs for employment, as Syrians only receive work permits as foreign residents, and face a
number of difficulties in renting premises to open a shop or a small business, opening a bank account or
transferring money abroad. Syrian refugees ranked employment among their fifth most priority need2.
Innovative Approaches

Among the issues raised is the need to use new technologies in providing aid to refugees. Some solutions,
such as the use of mobiles and text messaging for the registration process and disseminating important
information to refugees can strengthen refugee protection and improve access to aid.

Some Syrians noted, however, that mobile phone technologies should be used with caution because they
can dehumanize interaction with communities. Additionally, they underscored the need for in-person
dialogue when dealing with sensitive information.
2
These included: Safety/security, food, shelter, water, cash, education, emergency health services, regular health care, mental health
services/counselling, information about humanitarian goods and services, information about what is happening in the country (news),
employment, space for children to play and ‘other’.
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International Organization for Migration (IOM) Focus Group Discussions with affected migrant and
refugee communities in Egypt

As part of the preparatory process for the WHS Regional Consultation for the MENA region, IOM held a
focus group discussion with seven members of the Somali, Sudanese, Ethiopian and Eritrean refugee
communities in Egypt. Two representatives of the Syrian refugee community were also present.

Participants fled their homes due to on-going conflict; seasonal or recurrent weather shocks,
persecution, and governmental policies.

Participants generally felt their experience with humanitarian action was negative. The majority
reported that they do not feel they were treated with dignity and respect by humanitarian actors. Some
recorded positive experiences with international and community-based organizations.

Some 77% of the participants indicated that humanitarian aid did not meet their priority needs and that
access to information was not sufficient. Some added that the remoteness of some humanitarian
organizations affected their ability to access aid.

Participants’ listed their main concerns during times of emergency as safety and security, shelter and
food.

Some key recommendations from the participants included linking humanitarian assistance to
development projects, increased monitoring and evaluation of humanitarian organizations,
supporting local initiatives and financing micro-credit projects for affected communities.
Recommendations
The below are the recommendations put forth by members of affected communities in Egypt to improve the
humanitarian system:
Ensuring better, more Inclusive, and Gendered Protection for Syrian Refugees

Syrian refugees in Egypt called for stronger protection mechanisms against harassment, assault, theft and
discrimination. They believe that the UN has a significant role to play in ensuring that protection
mechanisms are strengthened and respected in host states as well as in conflict situations.
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Promoting better Access to Affected Populations in Conflict Areas and in Host States

Respondents recommended that the humanitarian community establish better mechanisms to inform
refugees about the existing humanitarian organizations in host states and the kind of aid provided.

As for conflict situations, they called upon the international community to establish demilitarized
humanitarian corridors in Syria to allow safe transit of humanitarian aid in the country and to ensure the
protection of both civilians and humanitarian workers.
Vulnerability, Emergency Preparedness and Resilience

Syrian refugees stressed the importance of preparedness and planning ahead of the crisis, to ensure
readiness of humanitarian actors when crises occur. Another recommendation was to document best
practices from previous responses to avoid “reinventing the wheel”. Finally, refugees called for the
enactment of emergency preparedness frameworks across the region that are informed by best
practices from interventions for refugee populations in the region.
Migration

Participants emphasized the importance of availing of legal channels for resettlement and migration to
other countries if they felt that the situation in their host state is unsatisfactory. This way, refugees would
not resort to dangerous methods such as illegal migration by sea, where they risk detention and
endanger their lives.

In this sense, it is also important to receive support from the humanitarian community in raising
awareness of refugees and their legal rights and entitlements to resettlement, as well as to shed the
light on the legal implications of migration at sea.
Role of Media and Youth

Participants believe that the media has a seminal role to play in determining the status of refugees in
Egypt, and whether they will be accepted or rejected by their Egyptian counterparts. Therefore, it is
important to get the buy-in of media executives and personalities in Egypt in supporting positive
coverage of Syrian refugees and humanitarian affairs in general. Participants also called for more detailed
and better informed coverage of humanitarian issues by the media and using media as a tool to inform
the affected communities about humanitarian aid transparently.
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Relationship with Host State

Participants called for more support to initiatives by local communities, particularly with incomegenerating activities and the provision of academic scholarships for Syrian students.

They also demanded the resolution of the problems surrounding their legal status, particularly with
respect to residency and visa issues. Moreover, they stressed the importance of allowing freedom of
movement for refugees to other countries.
Protracted Crises

With regards to prolonged crises, refugees called repeatedly for change of humanitarian organizations’
approaches from immediate and short-term aid to more medium and long-term programs to support
affected communities in finding sustainable livelihood opportunities and building resilience in their new
host states.

Additionally, they stressed the importance of looking at crises from a broader and more regional
perspective so as to avoid the transfer of burden to only two or three countries in the region, which
affects both the host communities and the refugees themselves.

There was emphasis on the importance of addressing the underlying causes of conflicts and finding
solutions to the conflict together with channelling attention towards material and urgent needs.

Participants reiterated that support to affected communities can also be achieved by supporting local
initiatives to provide humanitarian aid or educational and employment opportunities.
Engagement with Affected Communities

Participants called for more engagement with representatives of affected communities and local
leaders from humanitarian organizations, so affected people can have a say in the kind of humanitarian
goods and services that they receive and that they feel they are entitled to.

Syrian refugees called for their involvement in the aid delivery and supply processes. This stems from
the belief that members of affected communities are the ones who can serve their counterparts best.
Humanitarian Coordination

Refugees called for the establishment of better coordination mechanisms between affected
communities and humanitarian organizations, amongst humanitarian organizations themselves, and
between governments and the humanitarian community.
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
Special emphasis was put on the need for coordination between UN agencies and the host state.
Various platforms were suggested, including common information sharing databases, the establishment
of more referral systems amongst UN agencies, INGOs and national and local organizations, as well as
using the internet and social media platforms.
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