reforming the global humanitarian system summer programme on international affairs and multilateral...
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REFORMING THE GLOBAL REFORMING THE GLOBAL HUMANITARIAN SYSTEMHUMANITARIAN SYSTEM
Summer programme on International Affairs Summer programme on International Affairs and Multilateral Governanceand Multilateral Governance
24 June 200824 June 2008
Gilles CARBONNIERGilles CARBONNIERProfessor, IHEIDProfessor, IHEID
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StructureStructure
1. What is humanitarian action?Definition; fundamental principles
Operational modes
Origin, evolution and current trends
2. Group exerciseCurrent trends & challenges; Iraq
3. Reforming the humanitarian systemCoordination, funding, accountability
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What is humanitarian action?What is humanitarian action?
New definition by the OECD/DAC (April 2007)New definition by the OECD/DAC (April 2007)Humanitarian aidHumanitarian aid aims to save lives, alleviate suffering and aims to save lives, alleviate suffering and maintain and maintain and protectprotect human dignity human dignity… … during and in the aftermath of emergencies. during and in the aftermath of emergencies. It should be consistent with the principles of humanity, It should be consistent with the principles of humanity, impartiality, neutrality and independence. impartiality, neutrality and independence.
3 categories (DAC)3 categories (DAC)Emergency response (material relief, food aid, coordination)Emergency response (material relief, food aid, coordination)Reconstruction and rehabilitationReconstruction and rehabilitationDisaster prevention and preparednessDisaster prevention and preparedness What about protection activities?What about protection activities?
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Fundamental principlesFundamental principlesSubstantial principles objectives
Humanity: prevent and alleviate human suffering, protect lives and dignity, guard and promote the law (IHL)
Impartiality: non-discrimination (between individuals) and proportionality (according to the needs)
Derived principles means to an end
Neutrality: refrain from taking side to maintain trust, prevent political instrumentalization
Controversies around neutrality
Independence: be and act autonomously, independently from powers
Solidarity?
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Fundamental principlesFundamental principles
Why are they necessary?
Key issues Interpretation and operalization (by donors, military,
private firms, NGOs, UN, etc.)
Humanitarian interventions by States
Codes of conduct and humanitarian ethics
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Operational strategiesOperational strategies
AssistanceProtection Prevention
Alleviate sufferingPrevent
disasters
RebuildPrevent
and sanction
violations
Protect life and dignity
Persuasion SubstitutionDenounciation
Mobilization Support 5 action modes:
3 intervention types:
Objectives:
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Action modes & optionsAction modes & options
With regard to the authorities in charge:With regard to the authorities in charge:– PersuasionPersuasion– SupportSupport– SubstitutionSubstitution
With regard to influential actorsWith regard to influential actors– MobilizationMobilization– DenounciationDenounciation
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Origin & evolutionOrigin & evolution
19th century: Humanitarian interventions19th century: Humanitarian interventions
20th century20th centuryWorld War I & II, emergence of NGOsWorld War I & II, emergence of NGOsCold-war freeze Cold-war freeze 1970-80s: Emergence of “without borderism”1970-80s: Emergence of “without borderism”1990s: Coming back of the State & the UN1990s: Coming back of the State & the UN
2121stst century: two diverging trends century: two diverging trends- Integrated missions (Afghanistan, Irak)- Integrated missions (Afghanistan, Irak)
Whole-of-government approachWhole-of-government approach
- Neutral and Independent humanitarian action (NIHA)- Neutral and Independent humanitarian action (NIHA)
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Humanitarian AssistanceHumanitarian Assistance
from DAC Donorsfrom DAC Donors
0
1
2
3
4
5
6
7
8
1970
1971
1972
1973
1974
1975
1976
1977
1978
1979
1980
1981
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
Years
US
$ b
illio
n (
co
ns
tan
t, 2
00
2)
Humanitarian Assistance
• Sources: Global Humanitarian Assistance, Up-date 2004-05; and 2007/8, Development Initiatives (www.globalhumanitarianassistance.org)
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Group exerciseGroup exercise
1.1. Why such an increase in humanitarian Why such an increase in humanitarian aid since 1990?aid since 1990?
2.2. What are the key challenges facing the What are the key challenges facing the humanitarian system?humanitarian system?
• What are the specific challenges of What are the specific challenges of humanitarian involvement in Iraq?humanitarian involvement in Iraq?
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The humanitarian systemThe humanitarian systemInter-Agency Standing Committee Full Members and Standing Invitees
Full Members
Food and Agricultural
Organisation (FAO)
Office for the Coordination of
Humanitarian Affairs (OCHA)
United Nations Development
Programme (UNDP)
United Nations Population Fund
(UNFPA)
United Nations High Comissioner
for Refugees (UNHCR)
United Nations Children’s Fund
(UNICEF)
World Food Programme (WFP)
World Health Organisation
(WHO)
Standing Invitees
International Committee of the
Red Cross (ICRC)
International Council of Voluntary
Agencies (ICVA)
International Federation of Red
Cross and Red Crescent
Societies (IFRC)
American Council for Voluntary
International Action (InterAction)
International Organisation for
Migration (IOM)
Office of the High Commissioner
for Human Rights (OHCHR)
Office of the Special
Representative of the Secretary
General on the Human Rights of
Internally Displaced Persons
(RSG on HR of IDPs)
Steering Committee for
Humanitarian Response (SCHR)
World Bank (World Bank)
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The humanitarian systemThe humanitarian system
The UN FamilyThe UN FamilyWFP, HCR, UNICEF, UNRWA, FAO, WHO, OCHA… WFP, HCR, UNICEF, UNRWA, FAO, WHO, OCHA…
The Red Cross/Red Crescent MovementThe Red Cross/Red Crescent MovementICRC, International Federation, >190 National SocietiesICRC, International Federation, >190 National Societies
The NGOs crowdThe NGOs crowdMSF, World Vision, CRS (Caritas), IRC, Care, Islamic Relief… MSF, World Vision, CRS (Caritas), IRC, Care, Islamic Relief…
======================States / donorsStates / donors
Bilateral agencies with growing operational capacitiesBilateral agencies with growing operational capacities
Emerging actors Emerging actors The military? Private contractors? Multinational companies? Private The military? Private contractors? Multinational companies? Private foundations? foundations?
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Why a reform of the global Why a reform of the global humanitarian system?humanitarian system?
Proliferation of non-UN actorsProliferation of non-UN actorsCoordination is the Achille’s heel of the systemCoordination is the Achille’s heel of the system
Poor perfomance and changing role of the UNPoor perfomance and changing role of the UNImprove operational capacity and recover leadershipImprove operational capacity and recover leadershipAddress concerns of some donors to get improved fundingAddress concerns of some donors to get improved funding
Increased public scrutiny and accountability Increased public scrutiny and accountability requirementsrequirements
Show results, accountability to donors and beneficiaries, Show results, accountability to donors and beneficiaries, avoid « aid scandals », restore confidence in - and avoid « aid scandals », restore confidence in - and leadership from - the UNleadership from - the UN
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The 3 reform pillarsThe 3 reform pillars
“CLUSTER APPROACH”
Adequate capacity and leadership in key sectors --
>accountability
COORDINATION
NYC/Geneva & field coordination for humanitarian emergencies
FINANCING
Adequate, timely, predictable and flexible funding
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Financing humanitarian actionFinancing humanitarian action
Central Emergency Response Fund (CERF), 2006Central Emergency Response Fund (CERF), 2006Objective: $500m ($50m loans)Objective: $500m ($50m loans)Up to two third for emergencies (>$30m in 3-4 days)Up to two third for emergencies (>$30m in 3-4 days)One third for forgotten crises (2 allocations every year)One third for forgotten crises (2 allocations every year)
Pool fundingPool fundingIn Sudan and the DRC in 2006 In Sudan and the DRC in 2006 Un-earmarked, at the discretion of the humanitarian Un-earmarked, at the discretion of the humanitarian
coordinator, evaluated in 2007 coordinator, evaluated in 2007
Funding vs coordinationFunding vs coordinationWho pays coordinate?Who pays coordinate?Who pays for coordination?Who pays for coordination?
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The Cluster Approach: Accountability The Cluster Approach: Accountability predicatability, partnershipspredicatability, partnerships
11 SECTORS11 SECTORS LEAD AGENCYLEAD AGENCY (provider of last resort) (provider of last resort)
Nutrition Nutrition UNICEFUNICEFWater/SanitationWater/Sanitation UNICEFUNICEFHealthHealth WHOWHOEmergency Shelter:Emergency Shelter: UNHCR (IDPs)UNHCR (IDPs)
IFRC (disasters)IFRC (disasters)
Camp Management:Camp Management: UNHCR (IDPs)UNHCR (IDPs)IOM (disaster)IOM (disaster)
Protection: Protection: UNHCR (IDP)UNHCR (IDP)HCR - OHCHR - UNICEF (civilian residents)HCR - OHCHR - UNICEF (civilian residents)
Early RecoveryEarly Recovery UNDP UNDP
LogisticsLogistics WFP WFPTelecommunicationsTelecommunications OCHA - UNICEF - WFP OCHA - UNICEF - WFP
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Humanitarian coordinationHumanitarian coordination
Emergency Relief Coordinator (ERC, in NYC)Emergency Relief Coordinator (ERC, in NYC)UN USG & head of OCHA (Jan Egeland, John Holmes)UN USG & head of OCHA (Jan Egeland, John Holmes)
Humanitarian coordinators (HC, in the field)Humanitarian coordinators (HC, in the field)New positions for a daunting task !New positions for a daunting task !Train a new generation of HCsTrain a new generation of HCsToo many hats? Too many hats?
Why is the problem with coordination in change management?Why is the problem with coordination in change management?
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Conclusion & challenges Conclusion & challenges aheadahead
High stakes for the UN High stakes for the UN Does the global humanitarian system remain just a fiction?Does the global humanitarian system remain just a fiction?
A reform only for the UN?A reform only for the UN?
Reform & change managementReform & change managementNeed for buy-in from operational agencies, UN Member states and Need for buy-in from operational agencies, UN Member states and main donorsmain donors
Need for greater clarity on process and outcomesNeed for greater clarity on process and outcomes
Balance between coordination and actual results in the field Balance between coordination and actual results in the field
Integrated approaches and PRTs as a challenge to the future of Integrated approaches and PRTs as a challenge to the future of the humanitarian enterprisethe humanitarian enterprise