Saving lives today and tomorrow : managing the risk of humanitarian crises

98 Pages·2014·1.19 MB·English

by  Andrew

OCHA POLICY AND STUDIES SERIES
SAVING LIVES
TODAY
AND TOMORROW
MANAGING THE RISK OF HUMANITARIAN CRISES
OCHA
OCHA POLICY AND STUDIES SERIES
SAVING LIVES
TODAY
AND TOMORROW
MANAGING THE RISK OF HUMANITARIAN CRISES
OCHA
ACKNOWLEDGMENTS
Research for this report was undertaken for Southern Africa) and Dr. Ailsa Holloway
jointly by the UN Offce for the Coordination (Stellenbosch University) for their permission
of Humanitarian Affairs (OCHA) and DARA. to integrate information and fndings from
Humanitarian Trends in Southern Africa:
Managing Editor: Andrew Thow
Challenges and Opportunities into this study.
Research and drafting team: Fernando
Espada, Marybeth Redheffer, Daniela Finally, we thank those experts who devoted
Ruegenberg, Andrea Noyes, Rodolpho their time to reviewing and discussing
Valente, Nathalie Guillaume the study, including: Sandra Aviles, Rob
Editor: Mark Turner Bailey, Rudi Coninx, Steve Darvill, François
Copy Editor: Nina Doyle Grünewald, Nick Harvey, John Harding,
Design and layout: wearebold.es, Debbie Hillier, Yves Horent, Daniel Kull,
Christina Samson Robert Piper and Rachel Scott.
This report benefted from the feedback Photo credits: Page 16 – OCHA / Zarina
of our advisory group members: Dulce Nurmukhambetova, Page 32 – OCHA / David
Chilundo, Ailsa Holloway, Randolph Kent, Ohana, Page 46 – FAO, Page 72 – OCHA.
Pamela Komujuni, Toby Lanzer, Emanuel
© United Nations 2014. This publication
Tachie Obeng, Eva von Oelreich, Marianna
enjoys copyright under Protocol 2 of the
Olinger, Kevin Savage, Hansjoerg Strohmeyer
Universal Copyright Convention. No portion
and Misikir Tilahun. Special thanks are due
of this publication may be reproduced for
to the Chair of the advisory group, Sir John
sale or mass publication without express and
Holmes, for his commitment and guidance.
written consent.
OCHA and DARA thank the hundreds
This report was made possible by funding
of people who kindly shared their views
from Australia and Germany.
and experience for this report, including
OCHA and DARA staff for their valuable Produced by: OCHA Policy Analysis and
support, comments and suggestions. Thanks Innovation Section, Policy Development and
especially to OCHA staff in case-study Studies Branch
countries (Burkina Faso, Indonesia, Kyrgyzstan Kirsten Gelsdorf, Chief, Policy Analysis and
and Tajikistan) and in regional offces, as their Innovation Section
support, comments and suggestions were Hansjoerg Strohmeyer, Chief, Policy
instrumental in the success of feld research. Development and Studies Branch
For more information, please contact:
Thanks also to the Southern Africa Regional
E-mail:
TAbLE OF CONTENTS
MESSAGES FROM THE ADVISORY GROUP 2
EXECUTIVE SUMMARY 4
INTRODUCTION 8
Chapter 1: RISKS AND CONSEQUENCES 17
Global challenges and the changing risk landscape 18
From global risk to local crisis 20
Key concepts 24
Perspectives on risk 25
A multifaceted response to multidimensional crises 26
Can the humanitarian system adapt? 27
Chapter 2: WHY RISK MATTERS TO HUMANITARIAN ASSISTANCE 33
Why manage crisis risk? 34
How risk is managed 34
Different contexts, different risks 36
Whose responsibility is it? 38
The role of humanitarian organizations in managing crisis risk 38
What stands in the way of managing crisis risk? 40
Translating support into action 45
Chapter 3 MANAGING CRISIS RISK MORE EFFECTIVELY 47
Linking Government, development and humanitarian efforts 48
Analysis, planning and programming 53
Funding a crisis-risk management approach 60
Leadership and advocacy 69
Chapter 4 CONCLUSION AND RECOMMENDATIONS 73
Make preventing future humanitarian crises a priority 76
Create new partnerships and incentives 76
Work differently and systematically address risk 77
Dedicate resources today to save lives tomorrow 77

REFERENCES 78
11
MESSAGES FROM
THE ADVISORY GROUP
The sad fact is that not only are humanitarian Although it is impossible to avert all disasters,
needs rising, as the rising world population measures can and must be taken to alleviate
faces increased risks from climate change, suffering before it happens. This study makes
environmental degradation and the the case for a paradigm shift in the way we
consequences of confict, but anyone in the approach responses to humanitarian crises.
business also knows we need to do much While response is still critical, much has to
more to reduce the impact of disasters be done to boost crisis prevention. And the
before they happen, and to build local task does not solely rest with humanitarian
capacity. This report is another wake-up organizations. This is a study that should
call to all concerned—humanitarian and remain on the desk of all concerned with
development agencies, donors and affected saving lives.
Governments alike—to take our collective
Misikir Tilahun, Head of Programmes, Africa
heads out of the sand, and apply more of our
Humanitarian Action
minds and our resources in these directions.
There should be no more excuses.
John Holmes, former UN Emergency Relief
Coordinator, Chair of the International Rescue International disaster response cannot keep
Committee – UK, and author of “The Politics of
pace with burgeoning global challenges.
Humanity” (Head of Zeus, 2013)
Preventing catastrophes is possible, but this
requires a new way of thinking and acting.
A timely, valid and indispensable piece of
Development and humanitarian actors, from
research, reminding us that response alone
local to global, need to reorient the way
is unsustainable, and that collective early
they operate to systematically analyse and
action saves not only lives, but increases
manage risk. This study provides a compelling
development opportunities. We can heed
call for change. It also provides timely
the recommendations today, or wait for
recommendations as the world looks towards
hazards to unceasingly challenge us, and
the post-2015 framework for development
for tomorrow’s generation to judge us as a
and disaster risk reduction, alongside the
generation that could have done more but
2016 World Humanitarian Summit.
chose to do less.
Kevin Savage, Humanitarian Research Coordinator,
Pamela Komujuni, Senior Disaster Management World Vision International
Offcer, Offce of the Prime Minister, Uganda
2 2
Around the world, we are seeing the Prevention is one of the most important
increasing impacts of shocks on local strategies in saving lives. For that reason,
communities, from natural hazards to food- Governments should invest to pursue this
price rises and confict. We are also seeing objective. This is why the motto for disaster
the profound benefts of supporting these management in Mozambique is, “It’s better
communities to reduce and manage risks to prevent it than to fx it.”
themselves, for example through community
Dulce Fernanda M. Cabral Chilundo, General
early warning and preparedness. Affected Director, National Institute for Information
Technology and Communication, Ministry of
people don’t see the institutional divides
Science and Technology, Mozambique
between humanitarian and development aid.
They only know whether the support they
get is relevant and useful and helps them
Implementing a risk-management approach
to be independent. This report can help us
to humanitarian crises requires signifcant
make sure it is.
changes: better collaboration between
Eva von Oelreich, President, Swedish Red Cross humanitarian and development communities;
better sharing of risk analysis; integrated
planning and programming; joined-up
Disasters are not aberrant phenomena, but resource mobilization over fve- to 10-year
rather refections of the ways people live time frames. Risk management requires
their normal lives, and the ways societies sustained focus and investment and is a
prioritize and allocate resources. This study marathon, not a sprint.
has more than sustained this point with
Hansjoerg Strohmeyer, Chief, Policy Development
practical insights and strategic perspectives.
and Studies Branch, OCHA
Randolph Kent, Humanitarian Futures Programme,
King’s College London This report brings together compelling
evidence that humanitarian crises are
not unexpected events, but the result of
processes that develop throughout time
As humanitarians it is vital to engage in
and can have their impacts dramatically
political processes that shape the focus of
decreased, if not fully prevented. To put
governments, as well as the development
risk at the core of the aid is to embrace the
agenda and the engagement of the private
knowledge and experience gained over
sector, if we are to move forward on the
several decades of practice.
agenda of prevention and not only address
symptoms or focus on humanitarian response.
Marianna Olinger, PhD in Urban and Regional
Planning, Brazil
Toby Lanzer, United Nations Resident Coordinator
and Humanitarian Coordinator in South Sudan
33
ExECUTIVE SUMMARY
The number of people affected by Crisis-risk management needs to be
humanitarian crises has almost doubled embedded in the humanitarian aid system.
over the past decade and is expected This includes systematically identifying risks,
to keep rising. In early 2014, international reducing their impact and coping with the
aid organizations aimed to assist 52 million residual effects. Currently, action following
people in crisis, and millions more people the warning signs of crises is often late or
sought help from their communities, local insuffcient, and funding is too focused on
organizations and Governments. The cost of response. Long-term aid is not helping the
international humanitarian aid has more than most vulnerable people to build resilience.
trebled in the last 10 years, and responders Every humanitarian crisis is different, but a
are being asked to do more, at a greater cost, risk-management approach can and should
than ever before. be applied universally. It should go hand in
hand with responding to need.
Global challenges—such as climate change,
population growth, food- and energy-price Humanitarian organizations cannot do
volatility, water scarcity and environmental this alone. Preventing and mitigating crises
degradation—are increasing risks for requires the commitment of Governments,
vulnerable people. They are eroding development organizations and many others.
people’s ability to cope with shocks, making When Governments take the lead, they save
crises more protracted and recurrent, and more lives, avert economic losses and foster
undermining sustainable development. sustainable development. Government
These trends have become as likely to cause leadership encourages humanitarian and
humanitarian crises as disasters and conficts. development organizations to work more
effectively together and multiplies their impact.
A shift towards a more anticipatory and
preventative approach to humanitarian Humanitarian and development
crises is needed. Most crises can be predicted organizations need to transcend the
and, while they cannot always be prevented, institutional divide that separates them.
the suffering they cause can often be greatly This divide inhibits programmes that can help
reduced. But humanitarian aid today is people manage risk, such as preparedness
overwhelmingly focused on responding after and livelihoods support. They need to agree
crises occur. Governments and their partners common risk-management and resilience
have failed substantially to reduce risks to the objectives, and to achieve them through joint
world’s most vulnerable people. It is time for a analysis, planning, programming and funding.
fundamental change in approach.
4 4
National and local capacity is critical Not enough funding goes to risk-
to successful risk management. management activities. Prevention-and-
Humanitarian organizations already work preparedness funding comprised less
with Governments to manage crisis risk, than 0.5 per cent of all international aid
but their role is rarely systematic and their over the past 20 years, and most came
services are diffcult to access outside crises, from humanitarian budgets. Assistance to
which is when everyone is focused on prevent crises rarely goes to the people
response. Governments and humanitarian and countries most at risk. New funding
organizations need to build a better-defned, mechanisms are not required, but funding
less-politicized and longer-term relationship. based on objective and shared assessment
of crisis risk is essential. Insurance and other
There needs to be better analysis of the risk-transfer tools offer opportunities to
risks that lead to crises and more effective better manage crisis risk.
systems to respond when risks are
identifed. This can include more sophisticated There is insuffcient leadership in
risk models and triggers, as well as forums humanitarian organizations to improve
to share analysis and address risks. Joint risk management. Aid agencies need
analysis and planning between humanitarian to honestly examine their organizational
and development organizations are critical. structures , incentives, processes and culture.
The timing of humanitarian and development Senior leaders need to champion and be
planning also needs to be aligned. accountable for managing crisis risk, and
concerted advocacy is needed to bring it to
There is insuffcient assistance for people the attention of decision makers. The 2016
to prevent and mitigate crises and increase World Humanitarian Summit and post-
resilience. The majority of humanitarian aid 2015 development agenda offer excellent
comprises material assistance (food, water, opportunities to do this.
shelter, health care), even when crisis has
become the norm. Good programming This report presents a humanitarian
helps people address risk in a holistic way, perspective on a challenge that goes far
addressing current and future challenges. beyond the humanitarian sector. The shift
Social-protection mechanisms, such as from cure to prevention is ultimately a
cash-transfer programming, need to be political challenge that requires the will
dramatically scaled up. and efforts of Governments, development
organizations, civil society, private companies
and many others. This report is intended to
start a global dialogue, to change the way we
do business. We cannot afford not to do so.
55
Summary of recommendations
Make preventing Prioritize crisis-risk management. Increase and formalize
future humanitarian Address risk through all functions; role in managing crisis
provide livelihood options, basic risk, work more closely
crises a priority services and social protection with Governments to build
for the vulnerable; and set up capacity. Provide aid that
systems for crisis anticipation, meets immediate needs and
preparedness and response. addresses future risk.
Support and develop joint
Create new
initiatives that contribute to crisis
partnerships anticipation, prevention, mitigation
and incentives and recovery and commit resources
to those initiatives. Strengthen
links between humanitarian and
development teams through joint
planning cells.
Work differently
Base planning on a common analysis
and systematically
of risk and align planning cycles
address risk where possible. Support tools and
processes to jointly analyse crisis Increase the capacity of
risk, such as the InfoRM initiative. the RC/HC for risk analysis
and strategic planning,
for example through an
expert roster system.
Base crisis prevention and mitigation
Dedicate resources funding decisions on risk analysis.
today to save lives Ensure suffcient funds fow through
existing mechanisms to support the
tomorrow
people and countries at highest risk
of crises.
6 6
Ensure development aid targets Launch a global advocacy
people and countries most at risk campaign on preventing
from crises. Integrate crisis risk humanitarian crises, focused
into national development plans, on the post-2015 development
bilateral agreements. Specifcally agenda and World
include it in the post-2015 Humanitarian Summit. Use
development agenda. high-level ‘global champions’.
Establish a national Appoint senior leaders with
coordination forum to jointly responsibility for crisis-risk
analyse and address risks, management, as well as
monitor and share early Regional HCs to help align
warning information, and risk-management work of
develop triggers for action. Governments, international
organizations and donors.
Increase the length of planning
cycle to three years in protracted
crises. Increase use of programmatic
approaches–including preparedness,
livelihood support and cash-transfer
programming–to help communities
manage the risk of crises.
Ensure existing funding Work with the private sector
mechanisms are reviewed and and other relevant partners to
adjusted to maximize their increase the use of risk-transfer
contribution to managing crisis mechanisms, such as risk
risk. Dedicate a higher proportion mutualization and micro-insurance.
of core funding to activities that
help manage crisis risk.
Host governments Donor governments Humanitarian organizations Development organizations
Note: This is an abridged version of the report’s recommendations. See Chapter 4 for the complete version.
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