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 mixed bagThe NGOs mixed bagMSF, 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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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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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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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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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