Kenya is at a historic turning point in refugee protection and inclusion. For over 860,000 refugees and asylum seekers, the country’s shift from camp-based management toward integrated settlements represents more than policy reform – it offers a potential pathway to dignity, self-reliance, and long-term resilience alongside host communities.
The Kenya Evidence Platform’s annual conference, held September 16-17 at Mövenpick Nairobi, brought together government agencies, UN bodies, donors, municipalities, refugee-led organisations, researchers, and host community representatives to examine this transition. Organised by the Refugee-Led Research Hub (RLRH), Maseno University, and the Regional Durable Solutions Secretariat (ReDSS) with support from the Dutch Ministry of Foreign Affairs, the two-day event unpacked Kenya’s evolving refugee policy and the role of displacement-affected communities in shaping its future.
The Shirika Plan: From Camps to Communities
Launched on March 28, 2025, the Shirika Plan builds on the Refugee Act (2021) and fundamentally shifts Kenya’s approach from camp-based management toward integrated settlements and shared development. Opening remarks from the Department of Refugee Services (DRS), UNHCR, ReDSS, and the Dutch Embassy emphasized the significance of this moment.
Speaking on behalf of the Principal Secretary, Gladys Kiapa described the Shirika Plan as “a historic transformation for Kenya – a shift from camps to communities, from survival to self-reliance.” She highlighted initiatives already underway, including integrating refugees into the national health insurance scheme (SHA) and the NYOTA Programme (National Youth Opportunities Towards Advancement), which will benefit 820,000 young people, including 10,000 refugees.
However, Kiapa acknowledged that capacity gaps and limited awareness of what the Shirika Plan means – especially at community level – remain critical challenges.
Centering Refugee Leadership
A recurring theme throughout the conference was the central role refugees must play in shaping the transition. Speakers warned against tokenism, where refugees are invited to discussions without genuine decision-making power. As Jean-Marie Ishimwe stated: “Refugees are too often engaged just for rubberstamping. True accountability means shaping priorities, not just sitting at the table.”
Panelists from the first panel on Refugee leadership and accountability in transitions (left to right): Jacob Bonyo (RefugePoint), the panel (second left – John Ebenyo – Kakuma Municipality, Fardosa Salah – RLRH, Ishimwe and Jacob) follows Damaris Bonareri’s (Heinrich-Boll Foundation) intervention (extreme left), and Jean-Marie Ishimwe (R-SEAT)
Promising examples of meaningful participation emerged from both major refugee-hosting areas. In Kakuma Municipality, local forums are being redesigned from “Citizens Fora” to “Residents Fora” to ensure both refugees and host communities can voice their priorities. “We must build spaces where hosts and refugees alike decide how they want to be governed,” a Kakuma municipal leader noted. In Dadaab, refugees already serve on municipal boards and working groups, influencing integrated development plans.
Refugee-led organisations (RLOs) highlighted both opportunities and persistent barriers. While the Shirika Plan could open direct funding channels to RLOs, donor compliance requirements, capacity gaps, and structural exclusion remain significant obstacles. Participants identified flexible funding, capacity development, and genuine partnerships as critical to institutionalizing – rather than merely symbolizing – refugee leadership.
Financing the Transition
Day one addressed the operational realities of implementing the Shirika Plan. DRS shared progress on a communications strategy to address misinformation, new transition guidelines, and an implementation matrix supported by UNHCR and IOM. County governments are expected to play a central role, drawing on lessons from the Kalobeyei and Garissa development plans.
Panelists from the second panel on Resourcing and operationalising the Shirika Plan in a shifting landscape (left to right): Suhail Awan (UNHCR), Jeanpaul Kasika (RELON-Kenya), Mohammed (RLRH), Miguel de Corral (World Bank), and Ibrahim Khalif (Department of Refugee Services)
The World Bank, a new entrant in Kenya’s refugee space, emphasized the need for sustainable financing models. “Humanitarian aid alone cannot carry the weight of refugee management. We need sustainable, area-based development that lifts both refugees and hosts,” their representative argued.
RLOs stressed that localization must be more than rhetoric. As the most consistently present actors, community-based organizations represent the most sustainable investment. A common thread emerged: financing refugee inclusion cannot rely on humanitarian budgets alone. County ownership, private sector engagement, and long-term development financing must converge for the Shirika Plan to succeed.
Knowledge Production and Accountability
The second day focused on research and evidence as pathways to accountability. The Refugee-Led Research Hub presented its model of building refugee researchers’ capacity through mentorships and grants. By producing evidence rooted in lived experience, refugee researchers ensure knowledge is not only generated but also trusted and used. “Refugee researchers can frame their own problems in their own way – that is the starting point of real accountability,” said Winnie Makau.
University representatives from Moi and Strathmore highlighted the importance of African authorship and locally driven approaches, invoking principles like Ubuntu to argue for community-based solutions. Education, they stressed, is a cornerstone of empowerment and inclusion.
UNHCR and other partners emphasized that community-led research can hold institutions accountable by raising awareness of local needs and building feedback loops that strengthen trust. As Dr. Opondo from Moi University stated, “Natural assimilation is part of human existence, but it must be supported by education and empowerment.”
Panelists from the second panel on Accountability and Inclusion through Knowledge Production (left to right): Winnie Makau (RLRH), Gerawork Teferra (Columbia University), Dr. Paul Opondo (Moi University), Dr Allan Mukuki (Strathmore University), and Dr Michael Owiso (Maseno University)
Cross-Cutting Challenges
Several persistent challenges emerged across panels. Capacity and knowledge gaps leave many communities, and local officials unclear on the Shirika Plan’s scope and implications. Humanitarian funding cuts have already strained services and fuelled tensions, particularly in camps. Without deliberate institutional mechanisms, refugee participation risks remaining symbolic. Clear, accessible information for host communities, refugees, and frontline actors is urgently needed.
Moving Forward Together
The conference closed with a clear message: advancing inclusion and accountability in Kenya’s refugee transitions is a shared responsibility. Government and county authorities must drive the Shirika Plan with transparency, clear communication, and strong community participation mechanisms. Donors and development partners should provide predictable, flexible, multi-year funding, including direct support to refugee-led organisations. Humanitarian and international agencies must work alongside -not parallel to – government structures, investing in local institutional capacity.
Refugee-led organisations must continue demanding meaningful participation while strengthening internal governance to demonstrate readiness for direct partnership. Academia and researchers should ensure evidence remains locally grounded, accessible, and shared widely. Displacement-affected communities must stay engaged through Residents Fora, municipal planning boards, and community dialogues.
Kenya’s journey is far from simple. The Shirika Plan offers a bold blueprint, but its success depends on collaboration, trust, and sustained commitment. As discussions made clear, durable solutions will not come from policy frameworks alone – they must be grounded in the voices and leadership of those most affected. For all stakeholders, the message was clear: accountability and inclusion are not optional. They are the foundation of sustainable refugee management in Kenya.
