Rapport van het High Level Panel

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by  Nederlandse overheid

High-Level Panel on Humanitarian Financing
Report to the Secretary-General
Too important to fail—addressing
January 2016
High-Level Panel on Humanitarian Financing
Report to the Secretary-General
Too important to fail—addressing
the humanitarian financing gap
January 2016

iii
Contents
Executive summary . . . . . . . . . . . . . . . . . . . . . . . . v
1 . Introduction . . . . . . . . . . . . . . . . . . . . . . 1
2 . Shrink the needs:
a shared responsibility . . . . . . . . . . . . . 5
3 . Deepen and broaden the resource
base for humanitarian action . . . . . . . 11
4 . Improve delivery:
a Grand Bargain on efficiency . . . . . . 17
5 . Conclusion . . . . . . . . . . . . . . . . . . . . . . . . 25
Annex I . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Annex II . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Notes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

v
Executive summary
The world today spends around US$ 25 billion to provide the world’s scarce resources of official development assis-
life-saving assistance to 125 million people devastated by tance (ODA) should be used where it matters most—in
wars and natural disasters. While this amount is twelve situations of fragility.
times greater than fifteen years ago, never before has gen-
Beyond focusing ODA on fragile countries and
erosity been so insufficient. Over the last years conflicts
countries experiencing shocks due to conflicts in their
and natural disasters have led to fast-growing numbers
surroundings or to natural disasters, there has to be sys-
of people in need and a funding gap for humanitarian
tematic investment in resilience-building. This includes
action of an estimated US$ 15 billion. This is a lot of
dedicated funds for peacebuilding and conflict resolu-
money, but not out of reach for a world producing US$
tion at the international level. In this regard the panel
78 trillion of annual GDP. Closing the humanitarian
endorses the recommendation of the UN Secretary-Gen-
financing gap would mean no one having to die or live
eral’s Advisory Group of Experts on the Review of the
without dignity for the lack of money. It would be a
Peacebuilding Architecture to put one per cent of core
victory for humanity at a time when it is much needed.
funding allocated to peace operations from assessed con-
The UN Secretary-General has appointed a nine- tributions of the UN’s Member States into the United
person group of experts (“the panel”) to work on finding Nations Peacebuilding Fund.
solutions about this widening financial gap. The panel
Similarly, countries at risk of natural disasters
identified and examined three important and interde-
should have emergency reserve funds and dedicated
pendent aspects of the humanitarian financing chal-
DRR budget lines for risk-reduction activities and for
lenge: reducing the needs, mobilising additional funds
receiving funding when disasters hit. Countries hosting
through either traditional or innovative mechanisms,
refugees should integrate displacement into their devel-
and improving the efficiency of humanitarian assistance.
opment plans and obtain predictable and adequate inter-
national support. And we should also follow the people
The panel’s work aims to help inform and shape the
in need, not the countries, by reclassifying the eligibility
objectives of the World Humanitarian Summit (WHS)
criteria for the International Development Association
in Istanbul in May 2016. It is also highly relevant in the
(IDA), thereby giving middle-income countries (MICs)
context of adopting the Sustainable Development Goals
access to its grants and low-interest loans. To further
(SDGs)—only by focusing the world’s attention on the
ensure that low-income countries can be assisted in times
rapidly growing numbers of people in desperate need will
of crisis, the panel recommends that during the next IDA
we be able to achieve the SDGs.
replenishment its shareholders vote to increase the cur-
rent level of funding of the Crisis Response Window by
Shrink the needs:
at least threefold.
a shared responsibility
Last, but not least, there must be an end to the short-
The panel recognises that the best way to deal with termism of annual—and retrospective—fundraising by
growing humanitarian needs is to address their root bridging the humanitarian-development divide with pro-
causes. This requires a strong determination at the gramming based on joint analysis. This way vulnerable
highest level of global political leadership to prevent and people can become self-reliant, being helped seamlessly
resolve conflicts and to increase investment in disaster by humanitarian organisations with higher capacity to
risk reduction (DRR), especially in the most vulnerable operate in volatile environments along with development
communities and countries. Because development is organisations with longer-term funding horizons and bet-
the best resilience-builder of all, the panel believes that ter capacity to support economically viable activities.
Too important to fail—addressing the humanitarian financing gap
vi
Deepen and broaden the resource to meet humanitarian needs. The potential certainly
base for humanitarian action exists for Islamic social finance to provide solutions.
Insufficient funding for humanitarian aid means not Partnering with media companies for free airtime
only more suffering but also a wider spread of global and directing donors to an alliance of humanitarian
instability. Helping people in distress is morally right, partners can reduce fundraising costs, improve the
but it is also in the interest of those who support aid. coherence of humanitarian response, ensure funding is
Today’s massive scale of instability and its capacity to used efficiently by partners, and strengthen public trust,
cross borders, vividly demonstrated by the refugee cri- increasing opportunities for ‘in kind’ contributions of
sis in Europe, makes humanitarian aid a global public expertise and other support.
good that requires an appropriate fundraising model.
Remittances to the developing world enable people
In an interconnected world we need solidarity fund-
to meet their basic needs and not depend on external
ing capable of crossing borders. The panel proposes that
aid. The panel thanks the money transfer agencies who
governments use the opportunity of the WHS to sign
already lower their commission rates in times of crises
up to the concept of a solidarity levy and create a steady
and encourage others to follow suit, preferably waiving
revenue stream for humanitarian action.
charges altogether in such moments. The WHS could
There is an over-reliance upon a small group of ODA be a platform for rallying support for states to meet the
donors. While they remain very important and are also SDG target of lowering transaction costs to less than
encouraged to do more, we are heartened by emerging three per cent by 2030.
donors who act on the premise that with greater wealth
Partnerships between the media, the private sector
comes greater responsibility. The panel believes that
and humanitarian organisations to raise funds need to
states that are appropriately credited and recognised for
go much further by building on existing successful mod-
their contributions to humanitarian aid will respond
els. UN agencies in particular should be encouraged to
generously. There is a need to better reflect the full con-
join or emulate them.
tributions of all states to humanitarian action.
Beyond governments, the humanitarian commu-
Improve delivery:
nity must harness the power of business to deliver its
a Grand Bargain on efficiency
key skills and capabilities. Business is still a modest fac-
tor in humanitarian activities, yet has the creativity and The panel concurs with a widely shared view among
capacity at scale to provide new solutions to risk man- stakeholders that systemic change in humanitarian aid
agement, support aid delivery, create jobs, and modern- delivery is needed in order to raise new money and use it
ise transparency and accountability. Involving staff in more effectively. Greater efficiency will create a virtuous
humanitarian action is also motivational, and companies circle by drawing in more funding. Since the status quo
need to be encouraged—from insurance and digital cash is not an option, the panel calls on donors and imple-
to logistics and telecommunications—to get involved in menting organisations to come together in a Grand Bar-
providing their relevant skills and capacity for delivering gain. As part of that agreement, donors would not simply
life-saving assistance. give more but give better, by being more flexible, and aid
organisations would reciprocate with greater transpar-
The time has come for innovative investment in
ency and cost-consciousness.
humanitarian action which leads to long-term social
improvements. Social Impact Bonds and micro-levies on
The elements of a Grand Bargain include provision of
corporations with high volume transactions have great
more cash-based assistance, where appropriate, and rec-
potential.
ognition of the comparative advantages of local, national
Given that the vast majority of conflict-affected pop- and international implementing organisations for delivery
ulations are in Muslim counties, the role of Islamic social of services. To improve response time the panel suggests
finance is particularly important. Work is ongoing to the creation of a repository of pre-qualified organisations
address how waqf, zakat and other instruments such as to dispense with repeated screening of NGOs, as well as
sukuk bonds can be channelled effectively and efficiently more work on strengthening local capacity.
Executive summary
vii
The panel wants donors to commit to more multi- grasp thanks to digital technology and this should be
year funding and less earmarking, since flexible fund- extended to include communities receiving aid: humani-
ing is the lifeblood of humanitarian operations. And tarian organisations can learn and improve by listening
donors should simplify and harmonise their reporting to the people they serve.
requirements, leaving aid workers more time to perform
If we are to move towards a model of collaborative
their life-saving activities. And we need greater transpar-
efficiency, the panel would like government donors and
ency from implementing organisations so that everyone
aid organisations to agree to a Grand Bargain. By doing
can “follow the money” on its journey from donor to
so, they will clearly demonstrate a common commitment
recipient. A global data platform to provide open and
to the greater good.
transparent data would help reduce transaction costs and
increase effectiveness. The panel presents this report conscious that the
implementation of its recommendations will depend
By committing to joint needs assessments, such upon the will of many to carry them forward. Panel
as those carried out in northern Syria and during the members are committed to continuing to offer their
Nepal earthquake, humanitarian organisations would assistance in the process of making these proposals a
increase donors’ trust. True transparency is within our reality.

1
1 . Introduction
Imagine a country of 125 million people, the eleventh We have a duty to focus the world’s attention on the
most populous nation in the world.1 This is like no other rapidly growing numbers of people in dire need: only
country we know: its citizens are without employment or if they are seen and heard will we honour the pledge to
shelter and do not have the means to feed themselves or leave no one behind and achieve the SDGs. This is one
provide for their loved ones. Too many of their women of the reasons for holding the first World Humanitarian
die giving birth and too few children are lucky enough to Summit (WHS), which will take place in Istanbul in
live until their 5th birthday. For those who do, especially May 2016.
girls, they do not attend school. They have been deprived
As part of the summit’s preparations the Secretary-
of their dignity and live in insecurity. Above all, they are
General appointed this High-Level Panel on Humani-
struggling to change their circumstances; they rely upon
tarian Financing, comprising individuals from interna-
charity to survive.
tional and national government, the private sector and
This is the number of people in the world who need civil society. The goal of the panel is to ensure that the
humanitarian assistance, mostly as a result of conflicts resources are found to meet the needs of those who are
but also because of natural disasters. In 2014, every the most likely to be left behind: the people whose lives
day 42,500 people were displaced by violence and con- are crushed by conflicts, earthquakes, typhoons and all
flict,2 while 53,000 people per day were forced from manner of disasters.
their homes by natural disasters, 90 per cent of which
In response to the widening gap between humani-
were due to weather-related events.3 Today, with violent
tarian needs and the resources available to service them,
extremism and climate change those figures are certain
the Secretary-General asked us to seek solutions: how
to be even higher—as will the cost to respond.
to mobilise greater funding, how to make that funding
more predictable, and how to ensure those resources are
Leaving no one behind managed most efficiently.
Our point of departure: every member of the panel
In September 2015 global leaders committed them-
believes that in today’s global economy of US$ 78 tril-
selves to “leave no one behind” when they launched
lion4 it is unacceptable that anybody should die or live
the Sustainable Development Goals (SDGs). Building
without dignity because we cannot find the resources
on progress made with the pursuit of the Millennium
required to help people in need.
Development Goals (MDGs), the SDGs aim to end
extreme poverty, ensure all people have access to basic We are humbled by the dedication and selflessness
public goods and services and combat climate change of the thousands of humanitarian aid workers around
by 2030. But achieving the SDGs is not possible with- the world working on behalf of the most vulnerable
out first acknowledging and addressing the needs of this and who, all too often, pay the ultimate price for serv-
‘country’ of 125 million citizens. ing humanity: 329 aid workers were killed, kidnapped
or wounded in 2014.5 They ought to be equipped with
They are among the people who face the greatest risk
adequate resources to deliver to the people they serve.
of being left behind. While some of those in extreme
distress might make themselves heard and receive media But we are falling short in providing the funds that
attention for periods of time, the vast majority remains are needed. In 2015, for example, 1.6 million Syrian
voiceless and invisible, struggling to survive from one refugees had their food rations cut and 750,000 Syrian
day to the next. It is an invisible country which should refugee children could not attend school.6 Food rations
have no place in a world as wealthy as ours. for Darfuris living in camps in Chad varied greatly from