CHAPTER
PARTICIPANTS – MULTILATERAL
ORGANIZATIONS AND
INTERNATIONAL FINANCIAL
INSTITUTIONS
10
CHAPTER SUMMARIES
Multilateral organizations are composed of sovereign governments. They may be regional, organized around a
common issue or function, or global. International financial institutions (IFIs) are international banks composed
of sovereign member states that use public money from the Member States to provide technical and financial
support for developing countries. The United Nations is the organization most involved in the mitigation of, preparedness for, response to, and recovery from disasters around the world. It is considered the best equipped to do
so because of its strong relationships with most countries, especially the developing countries where assistance
is most needed. When disasters strike, the UN is one of the first organizations to mobilize, and it remains in the
affected countries during the recovery period for many years after. The Consolidated Appeal Process is one way
the UN garners international support for relief and reconstruction. In many regions, governments have formed
smaller international organizations, many of which address risk, as well. The IFIs provide nations with low capital
reserves funding in the aftermath of disasters recovery reconstruction. The World Bank is regarded as one of the
largest sources of development assistance.
Key Terms: international financial institution; international organization; international strategy for disaster
reduction; regional international organizations; the Consolidated Appeal Process; the United Nations.
INTRODUCTION
A multilateral organization is an organization composed of the central governments of sovereign
nations. Multilateral organizations are also called intergovernmental organizations and international
organizations. Member States come together under a charter of rules and responsibilities they have
drawn up and agreed on. Multilateral organizations may be regionally based (e.g., the European Union
[EU], the Association of South East Asian Nations [ASEAN]), organized around a common issue or
function (e.g., the North Atlantic Treaty Organization [NATO], the Organization of the Petroleum
Exporting Countries [OPEC]), or globally based (e.g., the United Nations [UN]). Like sovereign states,
they are recognized as having an established legal status under international law. The UN is the most
well-known and largest of all of the multilateral organizations because its membership draws from
nearly every nation, and because it covers a wide range of issues.
The first international organization to address the topic of disaster management was the International Relief Union (IRU), which was founded in Italy in 1921 and later integrated into the League of
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Copyright © 2015 Elsevier Inc. All rights reserved.
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Nations, which then became the UN. Since that time, a number of international organizations have
addressed disaster management as a part of their general operation.
International financial institutions (IFIs) are international banks composed of sovereign Member
States. They use public money from the Member States to provide technical and financial support for
developing countries. IFIs were first developed to help restore peace in the wake of conflict, but their
mission and purpose has expanded greatly. Today, IFIs seek to provide development and emergency
assistance to stabilize local and world economies. As part of this mission, IFIs have become heavily
involved in the reconstruction of nations affected by large-scale disasters and in funding mitigation and
preparedness measures that prevent recurrent disasters.
This chapter discusses the various forms of multilateral organizations involved in international disaster
management. The UN and its individual offices, agencies, and organizations working in mitigation, preparedness, response, or recovery are also described, followed by a description of other multilateral organizations, including NATO, the EU, the Organization of American States, and the Southern African
Development Community, among others. Finally, the international financial institutions that fund much of
the world’s development, as well as recovery from disasters of all kinds, are addressed. Although this chapter touches on some issues required in managing complex humanitarian emergencies (CHEs), it does not
address the peacekeeping and peacemaking operations of the UN or any other international organization.
THE UNITED NATIONS
BACKGROUND
The United Nations (UN) was established in 1945, when representatives from 51 countries converged
in San Francisco to establish the UN Charter as a commitment to preserve peace in the aftermath of
World War II. Later that year, the Charter was ratified by the five permanent members, China, France,
the Soviet Union, the United Kingdom, and the United States, as well as several other countries. Today,
193 countries are members of the UN, and the Charter (which is similar to a sovereign state’s constitution and establishes the rights and responsibilities of Member States) continues to be amended to reflect
the changing needs of world politics.
The UN is not a government body, nor does it write laws; however, Member States can use the UN
to resolve conflict and create international policy. While the UN cannot force a sovereign country to
comply with its decisions or actions, the organization’s global stature and collaborative nature give
weight to its resolutions.
The UN has six main organs. Five of these—the General Assembly, the Security Council, the Economic and Social Council, the Trusteeship Council, and the Secretariat—are based in New York City at
the UN Headquarters. The sixth, the International Court of Justice, is located at The Hague in the Netherlands. The UN also maintains operational and program offices throughout the world. (See
figure 10.1.) Through these major bodies and their associated programs, the UN has established a presence in most countries and has fostered partnerships with Member State governments.
THE GENERAL ASSEMBLY
All of the UN Member States are represented in the General Assembly, which is considered a “parliament of nations” that meets to address issues of global significance. Each Member State is given a
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FIGURE 10.1
UN organizational chart
Source: UN, 2014a.
single vote, with key issues decided by two-thirds majority. (Less significant matters are decided by
simple majority.) As mentioned earlier, the General Assembly cannot force its decisions on a sovereign
state, although they generally receive wide support. The Assembly holds regular sessions from September to December, and special/emergency sessions may be called at any time. When not in session, the
Assembly’s work is carried out by its six main committees, other subsidiary bodies, and the
Secretariat.
THE SECURITY COUNCIL
The UN Security Council’s primary responsibility is maintaining international peace and security in
accordance with the UN Charter. This council, which convenes at will, consists of 15 members, five of
which are permanent members (China, France, the Russian Federation, the United Kingdom, and the
United States). All UN Member States are obligated to carry out the Council’s decisions. Decisions
require nine affirmative votes, including all five votes of the permanent members. When the Council
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considers threats to international peace, it first explores peaceful settlement options. If fighting is under
way, the Council attempts to secure a cease-fire, and it may send a peacekeeping mission to help the
parties maintain the truce and keep opposing forces apart. The Council can take measures to enforce its
decisions, such as imposing economic sanctions or arms embargoes. On rare occasions, the Council has
authorized Member States to use “all necessary means,” including collective military action, to see that
its decisions are carried out. These are referred to as “peacemaking operations.”
THE ECONOMIC AND SOCIAL COUNCIL
The Economic and Social Council is the central mechanism by which international economic and
social issues are addressed and by which policy recommendations are created. It also consults with
non-governmental organizations (NGOs) to create and maintain working partnerships between the UN
and civil society. The Council has 54 members, elected by the General Assembly for three-year terms.
It meets throughout the year, but its main session is held in July, during which major economic, social,
and humanitarian issues are discussed. The Council has several subsidiary bodies that regularly meet to
address issues such as human rights, social development, the status of women, crime prevention, narcotic drugs, and environmental protection.
THE TRUSTEESHIP COUNCIL
The Trusteeship Council originally provided international supervision for 11 trust territories administered by seven Member States and ensured that adequate steps were taken to prepare the territories for
self-government or independence. By 1994, all trust territories had attained self-government or independence. Its work completed, the Trusteeship Council now consists of the five permanent members of
the Security Council. It has amended its rules of procedure to allow it to meet as and when the occasion
may require.
THE INTERNATIONAL COURT OF JUSTICE
The International Court of Justice, also known as the World Court, is the UN’s main judicial organ. The
World Court consists of 15 judges elected jointly by the General Assembly and the Security Council. It
serves to settle disputes between countries. Participation is voluntary, but when a state agrees to participate, it must comply with the Court’s decision. The Court also provides advisory opinions to the General Assembly and the Security Council on request.
THE SECRETARIAT
The Secretariat carries out the day-to-day work of the UN as directed by the General Assembly, the
Security Council, and the other organs. At its head is the Secretary General, who provides overall
administrative guidance. The Secretariat is made up of various departments and offices and maintains
a total staff of about 40,000 people throughout the world. Duty stations include the UN Headquarters
in New York and offices in Geneva, Vienna, and Nairobi, as well as other locations.
The Secretariat’s functions are diverse, ranging from “administering peacekeeping operations to
mediating international disputes, from surveying economic and social trends and problems to preparing
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studies on human rights and sustainable development” (UN 2014). The Secretariat staffs also work to
publicize the UN’s work through the world media and to organize conferences on issues of global concern. Secretariat staffs are considered international civil servants and answer only to the UN for their
activities.
THE UN SYSTEM
The system known as the UN includes many integrated and related offices and agencies that work
around the world. There are independent organizations known as “specialized agencies” linked to the
UN through cooperative agreements. These agencies are autonomous bodies created by intergovernmental agreement. They maintain broad international responsibilities in economic, social, cultural,
educational, health, and related fields. Additionally, a number of UN offices, programs, and funds work
to improve the economic and social conditions of people around the world. These agencies report
directly to the General Assembly or to the Economic and Social Council. (See figure 10.1.). Each organization has its own governing body, budget, and secretariat. Together with the UN bodies previously
listed, they are known as the UN family or the UN system.
UN ROLE IN DISASTER MANAGEMENT
The UN is the organization most involved in the mitigation of, preparedness for, response to, and recovery from disasters worldwide. It is considered the best suited to play this role because of the strong
relationships it maintains with most countries, especially the developing ones, where such assistance is
most needed. Through its many offices, agencies, and programs, it helps nations to reduce hazard risk
and vulnerability by targeting sources of risk in development and promoting increases in the disaster
management capacity of institutions and citizens. Because of their presence in almost every developing
country and the systems and structures that have been developed specifically for the purpose, the UN is
among the first organizations to mobilize when disasters strike. And because their focus is so allencompassing, they remain a source of technical and financial assistance in those same affected countries for the duration of recovery.
When a disaster occurs, the UN responds immediately, and on an ongoing basis, by coordinating the
provision of or directly providing relief aid such as food, water, shelter, medical assistance, and logistical support. The UN Office of the Coordination of Humanitarian Affairs (OCHA) Emergency Relief
Coordinator heads UN response to emergency situations. The coordinator works with a committee of
several UN humanitarian agencies, including the UN Children’s Fund (UNICEF), the UN Development Programme (UNDP), the World Food Programme (WFP), the UN High Commissioner for Refugees (UNHCR), and other associates as needed, depending on the problems specific to the event.
The UN promotes disaster risk reduction (DRR) and prevention activities through development
projects. Long before disasters strike, the UN works with governments, the private sector, non-governmental organizations, and citizens to address disaster risk-reduction measures by ensuring that appropriate measures are included in development activities. The UN has helped to map risk throughout the
world and has assisted national governments in creating the institutional frameworks to reduce or
respond to those risks. By encouraging the building of early warning systems and monitoring and forecasting routines, the UN is boosting local and regional preparedness capacity. At the end of the International Decade for Natural Disaster Reduction (1995–2005), which strove to shift from
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disaster–response-oriented projects to disaster mitigation, the UN adopted the International Strategy
for Disaster Reduction to promote disaster reduction and risk mitigation as part of its central mission.
This initiative continues to evolve in its pursuit of disaster risk reduction, promoting global resilience
to the effects of natural hazards, and reducing human, economic, and social losses by:
• increasing public awareness of the hazard risks faced and the options to address them
• obtaining commitment from public authorities to mainstream risk reduction into their work
• stimulating interdisciplinary and intersectoral partnership and expanding risk-reduction networking at all levels
• enhancing scientific research on the causes of natural disasters and the effects of natural hazards
and related technological and environmental disasters on societies
These strategies are integrated into the work carried out by each UN Country Office and promoted
to the national and local governments in each member country where the UN works. Hazard mitigation
and disaster preparedness strategies are communicated to members of all levels of society via public
awareness campaigns, and promoted by obtaining commitment from public authorities, facilitating
cooperation and communication between various government and non-governmental sectors, and
enabling the provision or transfer of technical knowledge.
Because the UN is such a complex organization, it can be difficult to illustrate the myriad ways in
which it addresses disaster management other than to describe the role of each organization and agency
in this area.
THE GENERAL ASSEMBLY
The UN General Assembly does not partake in any operational disaster management activities. However, as the main deliberative organ of the UN, it is responsible for launching many influential and
effective disaster management programs that are ultimately carried out by the various UN offices and
by the UN Member State governments. Examples include the endorsement of the UNDP Capacity for
Disaster Reduction Initiative (CADRI) and the launching of the International Decade for Natural
Disaster Reduction and its subsequent International Strategy for Disaster Reduction. The General
Assembly is also responsible for organizing and reorganizing the UN system to maximize its disaster
management capabilities, as in 1997 under the UN Program for Reform (1997), which created the
Office for the Coordination of Humanitarian Affairs (OCHA) and the UN Office for Disaster Risk
Reduction (UNISDR).
THE SECRETARIAT
The UN Secretariat is the international working staff of UN employees located at duty stations throughout the world. The UN Secretariat employees carry out the diverse day-to-day work of the various UN
offices. It services the principal UN organs and administers the programs and policies laid down by
them. At its head is the Secretary–General, who is appointed by the General Assembly on the recommendation of the Security Council for five-year renewable terms.
The Secretariat has approximately 43,000 employees. As international civil servants, staff members
and the Secretary–General answer only to the UN and take an oath not to seek or receive instructions
from any government or outside authority. Under the Charter, each member state agrees to respect the
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exclusively international character of the responsibilities of the Secretary–General and the staff and to
refrain from seeking to influence them improperly as they carry out their duties, including in the
response to and recovery from disasters.
Within the UN Secretariat are several departments and offices that address pre- and post-disaster
management activities. These include the Office for the Coordination of Humanitarian Affairs, the
Inter-Agency Standing Committee (IASC), the Executive Committee on Humanitarian Affairs, and the
Department of Economic and Social Affairs (DESA).
THE UN OFFICE FOR THE COORDINATION OF HUMANITARIAN AFFAIRS (OCHA)
OCHA’s mandate is to ensure that the relief provided is effective, not to provide effective relief.
(OCHA 2000)
UN Resolution 46/182, adopted in December 1991 by the UN General Assembly, was passed to
bolster the UN’s ability to respond to disasters of all types (including CHEs), and sought to improve
how the UN addresses humanitarian operations at the field level. Before 1991, the UN Disaster Relief
Coordinator managed natural disasters, and special representatives of the UN Secretary General coordinated CHEs. This resolution merged these two roles to create the Emergency Relief Coordinator
(ERC).
The Department of Humanitarian Affairs was created soon after, with the ERC elevated to the status
of Under-Secretary-General for Humanitarian Affairs. The IASC, the Consolidated Appeals Process
(CAP), and the Central Emergency Response Fund also were created to increase the humanitarian
assistance abilities of the ERC.
The Office for the Coordination of Humanitarian Affairs (OCHA) replaced the Department of
Humanitarian Affairs under the UN Secretary–General’s Program for Reform in 1998. It was established to accommodate the needs of victims of disasters and emergencies. Its specific role in disaster
management is to coordinate assistance provided by the UN system in emergencies that exceed the
capacity and mandate of any individual agency. OCHA response to disasters can be categorized under
three main groupings:
1. C
oordinating the international humanitarian response
2. Providing support and policy development to the humanitarian community
3. Advocating for humanitarian issues to ensure that the overall direction of relief reflects the general
needs of recovery and peace building
OCHA operations are carried out by a staff of approximately 2,150 people in New York, Geneva,
and in the field. (See figure 10.2.) OCHA’s 2015 budget was US$321.7 million, of which slightly less
than 4.5 percent ($14.45 million) came from the regular UN budget. The remaining 95.5 percent is
from “extra-budgetary resources,” which is primarily donations from Member States and donor organizations (OCHA 2014a).
As head of OCHA, the Under-Secretary-General for Humanitarian Affairs/UN Emergency Relief
Coordinator is responsible for the coordination of UN response efforts through the Inter-Agency Standing Committee. IASC consists of UN and outside humanitarian organization leaders, and analyzes
crisis scenarios to formulate joint responses that maximize effectiveness and minimize overlap. The
ERC works to deploy appropriate personnel from throughout the UN to assist UN resident coordinators
and lead agencies to increase onsite coordination. In September of 2010, the Secretary–General
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FIGURE 10.2
OCHA organizational chart
Source: OCHA, 2010a.
appointed Valerie Amos of Guyana to replace Mr. John Holmes of the United Kingdom as UnderSecretary-General for Humanitarian Affairs/UN Emergency Relief Coordinator.
OCHA regional offices monitor the onset of natural and technological disasters. Staff are trained in
disaster assessment and post-disaster evaluation methods before disasters strike. Once an impending or
actual disaster event is identified, OCHA initiates response and generates a situation report to provide
the international response community with detailed information, including damage assessment, actions
taken, needs assessment, and current assistance provided. If necessary, OCHA may then deploy a UN
Disaster Assessment and Coordination (UNDAC) team to assist relief activity coordination and assess
damages and needs.
If a disaster appears inevitable or is already unfolding, the ERC in consultation with IASC may
designate a humanitarian coordinator (HC), who becomes the most senior UN humanitarian official on
the ground for the emergency. The HC is directly accountable to the ERC, increasing the likelihood that
the humanitarian assistance provided is quick, effective, and well-coordinated. The HC appointment
generally signals that the event merits a long-term humanitarian presence. The criteria used by the ERC
to determine whether to appoint an HC center on the need for intensive and extensive political
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management, mediation, and coordination to enable the delivery of humanitarian response, including
negotiated access to affected populations; massive humanitarian assistance requiring action by a range
of participants beyond a single national authority; and a high degree of external political support, often
from the UN Security Council.
An On-Site Operations Coordination Center (OSOCC) may be set up in the field to assist local firstresponse teams to coordinate the often overwhelming number of responding agencies. The OSOCC has
three primary objectives: (1) to be a link between international responders and the government of the
affected country; (2) to provide a system for coordinating and facilitating the activities of international
relief efforts at a disaster site; and (3) to provide a platform for cooperation, coordination, and information management among international humanitarian agencies.
Finally, OCHA can set up communications capabilities if they have been damaged or do not exist
at an adequate level, as required by the UN responding agencies. OCHA generally concludes its responsibilities when the operation moves from response to recovery.
Overall, OCHA coordination is performed to maximize the response and recovery capabilities that
converge on the disaster scene, and to minimize duplications and inefficiencies. The structures and
policies that have been established to support this function include (adapted from OCHA 2005):
• Developing common strategies. Humanitarian assistance is most effective when common priorities
and goals exist among stakeholders and responders agree on tactics and jointly monitor progress.
OCHA works with its partners to develop a common humanitarian action plan and to establish
clear divisions of responsibility.
• Assessing situations and needs. OCHA staff assume responsible for assessing damages and
identifying needs, developing a plan of action to meeting those needs, and monitoring progress.
Responses are adjusted, if necessary, using ongoing analysis of political, social, economic, and
military environments and by assessing humanitarian needs to help the responding agencies better
understand the situation.
• Convening coordination forums. In its role as coordinator, OCHA holds a wide range of meetings
to bring together the various disaster management players for planning and information exchange.
These meetings help the participants to more accurately analyze the overall status of humanitarian
relief efforts as well as network and share lessons learned and best practices.
• Mobilizing resources. Through the CAP, OCHA leads the drive to get governments to commit
funding and resources necessary to address the identified needs. Allocation of funds has been
found to be more efficient within this centralized system.
• Addressing common problems. Every crisis is unique, and both new and old problems arise.
As coordinator, OCHA analyzes and addresses problems common to humanitarian actors,
such as negotiating with warring parties to gain access to civilians in need, or working with
UN security officials to support preparedness and response measures in changing security
situations.
• Administering coordination mechanisms and tools. OCHA, and the UN in general, have several
tools with which they can better address the humanitarian needs of disaster victims. These include
the IASC; rapid-response tools, such as the UN Disaster Assessment and Coordination Teams and
the International Search and Rescue Advisory Group; and smaller forums such as the Geographic
Information Support Team. OCHA also assists with civil–military cooperation, ensuring a more
efficient use of military and civil defense assets in humanitarian operations.
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The Field Coordination Support Unit in Geneva manages OCHA’s human, technical, and logistical
resources. These resources are primarily provided by the Danish and Norwegian Refugee Councils, the
Danish Emergency Management Agency, the Swedish Rescue Services Agency, and the Emergency
Logistics Management Team of the United Kingdom Overseas Development Administration.
THE EMERGENCY RELIEF COORDINATOR
The Under-Secretary-General for Humanitarian Affairs/Emergency Relief Coordinator advises the
UN Secretary–General on disaster-related issues, chairs the Executive Committee on Humanitarian
Affairs (ECHA), and leads the IASC. The coordinator is assisted by a deputy, who holds the position
of Deputy Emergency Relief Coordinator (DERC) and is responsible for key coordination, policy, and
management issues.
THE IASC
The Inter-Agency Standing Committee (IASC) was established in 1992 under UN Resolution 46/182. It
serves as a platform within which the broad range of UN and non-UN humanitarian partners (including
UN humanitarian agencies, the International Organization for Migration, three consortia of major international NGOs, and the Red Cross movement) may come together to address the humanitarian needs
resulting from a disaster. The IASC’s primary role is to formulate humanitarian policy that ensures a
coordinated and effective response to all kinds of disaster and emergency situations. The primary objectives of the IASC are to:
• Develop and agree on system-wide humanitarian policies
• Allocate responsibilities among agencies in humanitarian programs
• Develop and agree on a common ethical framework for all humanitarian activities
• Advocate common humanitarian principles to parties outside the IASC
• Identify areas where gaps in mandates or lack of operational capacity exist
• Resolve disputes or disagreement about and between humanitarian agencies on system-wide
humanitarian issues (OCHA 2005)
IASC members (both full members and standing invitees) include:
• Food and Agriculture Organization
• InterAction
• International Committee of the Red Cross (ICRC)
• International Council of Voluntary Agencies
• International Federation of Red Cross and Red Crescent Societies (IFRC)
• International Organization for Migration
• Office for the Coordination of Humanitarian Affairs
• Office of the High Commissioner for Human Rights
• Office of the Special Representative of the Secretary–General on Internally Displaced Persons
• Steering Committee for Humanitarian Response
• The World Bank
• United Nations Children’s Fund
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• United Nations Development Fund
• United Nations High Commissioner for Refugees
• United Nations Development Programme
• United Nations Population Fund
• World Food Programme
• World Health Organization
THE EXECUTIVE COMMITTEE ON HUMANITARIAN AFFAIRS
The Executive Committee on Humanitarian Affairs (ECHA) was created by the UN Secretary–General
to enhance coordination among UN agencies working on humanitarian affairs issues. ECHA meets on
a monthly basis in New York to add a political and peacekeeping dimension to humanitarian consultations. Its members include:
• United Nations Development Program
• United Nations Children’s Fund
• United Nations High Commission for Refugees
• World Food Programme
• Office of the High Commissioner for Human Rights
• Department of Peacekeeping Operations
• Department of Political Affairs
• United Nations Relief and Works Agency for Palestine Refugees in the Near East
• Office of the Special Representative of the Secretary–General for Children and Armed Conflicts
• World Health Organization
• Food and Agriculture Organization
THE OCHA DONOR RELATIONS SECTION
The OCHA Donor Relations Section (DRS), separated from the CAP in 2003, is the focal point for all relations with donors, particularly for funding-related issues. DRS advises the senior management team on
policy issues related to interaction with donors and resource mobilization. In addition, it plays a key role
in facilitating the interaction of all OCHA entities with donors, both at headquarters and in the field level.
THE COORDINATION AND RESPONSE DIVISION
The Coordination and Response Division (CRD) was created in 2004 by joining the former New Yorkbased Humanitarian Emergency Branch and the Geneva-based Response Coordination Branch. CRD is
responsible for providing disaster-related direction, guidance, and support to the ERC, the UN Resident/Humanitarian Coordinators, and OCHA’s field offices (including the deployment of extra personnel as necessary, or providing emergency cash grants).
THE OCHA EMERGENCY SERVICES BRANCH
Based in Geneva, the OCHA Emergency Services Board (ESB) was created to expedite the provision
of international humanitarian assistance. ESB develops, mobilizes, and coordinates the deployment
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of OCHA’s international rapid response “toolkit”—the expertise, systems, and services that aim to
improve humanitarian assistance in support of disaster-afflicted countries. ESB’s humanitarian
response activities include the coordination of disaster response and assessment (UNDAC; see in the
following section), the setting of international urban search and rescue standards (INSARAG; see in
the following section), and the establishment of OSOCCs. ESB supports OCHA field offices through
the following:
• Surge capacity and standby partnerships
• Military and civil liaison and mobilization of military and civil defense assets
• Dispatch of relief supplies and specialized assistance in environmental emergencies
• Dissemination of disaster-related information by means of ReliefWeb, the Central Register of
Disaster Management Capacities, and the Virtual OnSite Operations Coordination Center.
Within the ESB are seven separate sections, established to manage particular aspects of disaster
response:
1.
2.
3.
4.
5.
6.
7.
ivil-Military Coordination Section
C
Emergency Preparedness Section
Environmental Emergencies Unit
Emergency Relief Coordination Centre
Field Coordination Support Section
Logistics Support Unit
Surge Capacity Section
Established by the IASC in 1995, the Civil Military Coordination Section (CMCS), previously
named Military and Civil Defense Unit (MCDU), is the focal point for the efficient mobilization of
military and civil defense assets for use in humanitarian emergencies and for liaison with governments,
international organizations, regional organizations, and military–civil defense establishments deploying these assets. It also coordinates UN agency participation and participates in major military exercises comprising significant humanitarian scenarios. This section is responsible for the overall
management of the OCHA Central Register of Disaster Management Capacities, with specific maintenance of the MCDA Directory of Military and Civil Defense Assets and expertise. CMCS acts as a
facilitator and secretariat to the development of documents involving the broad international humanitarian community and is custodian of the “Oslo” and “MCDA” guidelines detailing the use of MCDA
in support of UN humanitarian operations in natural, technological, and environmental disasters and
complex emergencies, respectively.
The Emergency Preparedness Section (EPS) helps to maintain OCHA’s operational readiness
and to reinforce disaster preparedness work. EPS works with stakeholders at the national government
level in UN member countries in order to help build disaster response and recovery capacity in
advance of disasters. Much of the work performed by this unit is guided by the Hyogo Framework
for Action, which recommends the strengthening of disaster preparedness for effective response at
all levels.
The Environmental Emergencies Unit, or the Joint UN Environmental Programme (UNEP)/OCHA
Environment Unit, serves as the integrated UN emergency response mechanism that provides international assistance to countries experiencing environmental disasters and emergencies. This joint unit can
rapidly mobilize and coordinate emergency assistance and response resources to countries facing
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environmental emergencies and natural disasters with significant environmental impacts. The unit performs several key functions geared toward facilitating rapid and coordinated disaster response:
• Monitoring. The unit performs continuous monitoring and ongoing communication with an international network of contacts and permanent monitoring of news services and websites for early
notification of environmental occurrences.
• Notification. When disasters strike, the unit alerts the international community and issues “Information and Situation” reports to a comprehensive list of worldwide contacts.
• Brokerage. The unit is able to quickly establish contact between the affected country and donor
governments ready and willing to assist and provide needed response resources.
• Information clearinghouse. The unit serves as an effective focal point to ensure information on
chemicals, maps, and satellite images from donor sources and institutions are channeled to relevant authorities in the affected country.
• Mobilization of assistance. The unit mobilizes assistance from the international donor community
when requested by affected countries.
• Assessment. The unit can dispatch international experts to assess an emergency’s impacts and
to make impartial and independent recommendations about response, cleanup, remediation, and
rehabilitation.
• Financial assistance. In certain circumstances, the unit can release OCHA emergency cash grants
of up to $50,000 to meet immediate emergency response needs.
The Emergency Relief Coordination Center (ERCC) is the physical facility where OCHA centralized coordination activities are focused. The facility enables closer collaboration between internal and
external humanitarian stakeholders and has the capacity to serve as an OCHA Situation Centre, providing updates on humanitarian relief activities worldwide. The Centre consists of a main task force room,
a small conference room that can also be used for a second task force, and a technical room to control
all facility capabilities. The ERCC allows OCHA to coordinate two response teams simultaneously.
The Field Coordination Support Section (FCSS) was established within ESB in 1996 to support
national governments and the UN Resident Coordinators in developing, preparing, and maintaining
“standby capacity” for rapid deployment to sudden-onset emergencies to conduct rapid needs assessments and coordination. FCSS manages several programs and offices to improve international disaster
coordination and cooperation, including:
• The United Nations Disaster Assessment and Coordination (UNDAC) team. The UNDAC team is
made up of disaster management specialists selected and funded by the governments of UN Member States, OCHA, UNDP, and operational humanitarian UN agencies (such as WFP, UNICEF,
and WHO). It provides rapid needs assessments and supports national authorities and the UN
Resident Coordinator in organizing international relief. UNDAC teams are on permanent standby
status so that they can deploy within hours.
• The International Search and Rescue Advisory Group (INSARAG). INSARAG is an intergovernmental network within the UN that manages urban search and rescue (USAR) and related disasterresponse issues. It promotes information exchange, defines international USAR standards, and
develops methodologies for international cooperation and coordination in earthquake response.
• The Virtual On-Site Operations Coordination Centre (Virtual OSOCC). The Internet has made it
possible for humanitarian relief agencies to share and exchange disaster information continuously
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and simultaneously, and between any locations where Internet access can be obtained. The Virtual
OSOCC is a central repository of information maintained by OCHA that facilitates this exchange
of information with NGOs and responding governments. The information is stored on an interactive web-based database, where users can comment on existing information and discuss issues of
concern with other stakeholders.
The Logistics Support Unit (LSU) manages stocks of basic relief items that can be dispatched immediately to disaster- or emergency-stricken areas. The stockpile, which is located at the UN Humanitarian
Response Depot in Brindisi, Italy, includes nonfood, nonmedical relief items (such as shelter, water purification and distribution systems, and household items) donated by UN member governments. The LSU is
also involved in other logistical challenges, such as designing contingency plans for the rapid deployment
of emergency relief flights and providing interface on logistical matters with other humanitarian agencies
(such as WFP, WHO, UNHCR, IFRC, and ICRC). The LSU participates in the operation of a UN Joint
Logistics Center (see exhibit 10.1) and has co-sponsored an effort to adopt a UN-wide system for tracking
EXHIBIT 10.1 THE UN JOINT LOGISTICS CENTER
The UN Joint Logistics Center (UNJLC) is an interagency facility reporting to the Humanitarian Coordinator [within a
CHE], and overall to the IASC. Its mandate is to coordinate and optimize the logistics capabilities of humanitarian organizations in large-scale emergencies. UNJLC operates under the direction of the World Food Programme (WFP), who is
responsible for the administrative and financial management of the Centre. The UNJLC is funded from voluntary contributions channeled through WFP.
The requirement to establish [the UNJLC] was born out of the humanitarian response to the 1996 Eastern Zaire
crisis, which demanded intensified coordination and pooling of logistics assets among UNHCR, WFP, and UNICEF.
The interagency logistics coordination model was applied on subsequent UNJLC interventions in Somalia, Kosovo, East
Timor, Mozambique, India, and Afghanistan. In March 2002, UNJLC concept was institutionalized as a UN humanitarian
response mechanism, under the aegis of WFP, by the Inter-Agency Standing Committee Working Group (IASC-WG). The
UNJLC core unit was subsequently established in Rome.
In case of major disaster with substantial humanitarian multi-sector involvement during the immediate relief
phase, the UN agencies involved may consider that the establishment of a Joint Logistics Centre would contribute to
the rapid response, better coordination, and improved efficiency of the humanitarian operation at hand. . . . A standby
capacity will be developed for facilitating, if required, the timely activation and deployment in the field of a United
Nations Joint Logistics Centre—UNJLC. The UNJLC will support the United Nations agencies and possibly other
humanitarian organisations that operate in the same crisis area. The capacity includes the option to establish satellite
Joint Logistic Centres (JLC) dispersed at critical locations in the [affected area] and offering logistics support on a
reduced scale. . . .
Upon [UNJLC] activation, agencies will establish a Deployment Requirements Assessment (DRA) Team to carry out
a quick evaluation of the logistics situation and determine the requirements to deploy the UNJLC in the crisis area. This
DRA Team will work in close coordination with the humanitarian authorities and, if deployed, with the United Nations
Disaster Assessment and Coordination (UNDAC) Team. It will take all necessary measures for installing the UNJLC and
draft Ad Hoc Terms of Reference (TOR) for endorsement by the relevant humanitarian authorities. In case of peacekeeping
operations or in a complex environment, the UNJLC activation will be coordinated with the Department of Peacekeeping
Operations (DPKO) or the relevant military entities.
UNJLC Role and Scope of Activities
• The role of the UNJLC will be to optimise and complement the logistics capabilities of cooperating agencies within a
well-defined crisis area for the benefit of the ongoing humanitarian operation.
• The UNJLC will provide logistics support at operational planning, coordination, and monitoring levels. Unless
specified otherwise, the UN agencies and other humanitarian bodies, which are established in the area, will continue
(Continued)
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EXHIBIT 10.1 THE UN JOINT LOGISTICS CENTER—Cont’d
to exercise their normal responsibilities. As a result, the UNJLC will not be involved in policy and establishment of
humanitarian needs and priorities.
• Responsibilities will be defined as per the requirements on a case-by-case basis but will, in principle, be limited to
logistic activities between the points of entry and distribution in the crisis area. Detailed responsibilities . . . would be:
• Collecting, analysing, and disseminating logistics information relevant to the ongoing humanitarian operation;
• Scheduling the movement of humanitarian cargo and relief workers within the crisis area, using commonly available transport assets;
• Managing the import, receipt, dispatch, and tracking of non-assigned food and nonfood relief commodities;
• Upon specific request, making detailed assessments of roads, bridges, airports, ports, and other logistics infrastructure and recommending actions for repair and reconstruction.
• The scope of the UNJLC activities may vary with the type of emergency, the scale of involvement of the cooperating
partners, and the humanitarian needs. In general terms, the UNJLC would:
• Serve as an information platform for supporting humanitarian logistics operations;
• Upon specific request, coordinate the use of available warehouse capacity;
• Coordinate the influx of strategic humanitarian airlift into the crisis area;
• Serve as an information platform for recommending the most efficient modes of transportation;
• Identify logistical bottlenecks and propose satisfactory solutions or alternatives;
• Serve as the focal point for co-ordinating facilitation measures with local authorities for importing, transporting,
and distributing relief commodities into the country;
• Provide reliable information regarding the logistics capacity in meeting the prioritisation of targets;
• Be the focal point to coordinate humanitarian logistics operations with the local emergency management authorities (LEMA) or, in a peacekeeping or complex environment, with the Department of Peace Keeping Operations
(DPKO) or the relevant military entities.
Source: UNJLC, 2005.
relief supplies and common procedures for air operations. Finally, the LSU contributes information related
to stockpiles and customs facilitation agreements (which helps speed up the delivery of relief items).
The Surge Capacity Section (SCS) works to ensure OCHA always has the means and resources to
rapidly mobilize and deploy staff and materials to address the needs of countries affected by suddenonset emergencies. SCS operates using a number of distinct surge capacity resources, which include:
• The Emergency Response Roster (ERR). ERR, which became active in June 2002, aims to rapidly
deploy OCHA staff to sudden-onset emergencies to conduct assessments and establish initial
coordination mechanisms. The 35 staff included in the ERR are deployable within 48 hours of a
request for their services through a deployment methodology based on the UNDAC model. Staff
serve on the roster for about six months.
• The Stand-By Partnerships Programme (SBPP). SBPP is structured on legal agreements with 12
partner organizations that provide short-term staffing to field operations free of charge when gaps arise.
Partners maintain their own rosters of trained and experienced humanitarian professionals, many of
whom have OCHA or other UN humanitarian experience. SBPP staff can usually be deployed within
four weeks of the formal request, and an average deployment lasts five to six months.
• Associates Surge Pool (ASP). ASP, which was created in late 2010, helps to bridge the gap
between the immediate response surge and the arrival of regular staff. ASP comprises external
disaster management staff who can be deployed for up to six months upon the issuance of a Temporary Appointment. Contracting and deployment preparations take an average of three to four
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weeks. The ASP can deploy humanitarian affairs officers, information management officers, and
public information officers.
• Roaming Emergency Surge Officers (RESOs) and Roaming Operations Stability Officers (ROSOs).
The RESO and ROSO positions were created following a need to have senior surge staff available to
deploy to new and escalating emergencies for up to three months to provide leadership and stability
to OCHA operations. They spend 80 percent of their time in the field and 20 percent at headquarters.
When not in the field, RESOs and ROSOs work with the Surge Staff Development Team to develop
and deliver trainings and support lesson learning and other exercises to improve OCHA emergency
response during non-deployment periods.
OCHA PREPAREDNESS AND MITIGATION MEASURES
Although OCHA’s efforts primarily focus on coordinating the response to major disasters, the agency
also performs various tasks related to disaster risk reduction. For instance, OCHA representatives work
with disaster management agencies to develop common policies aimed at improving how the wider
stakeholder community of responders prepare for and respond to disasters. It also works to promote
preparedness and mitigation efforts in Member States to decrease vulnerability. CRD and ESB work
closely with the UN Development Programme, other UN programs as necessary, and outside organizations on various projects and activities to increase working relationships with national governments and
apply lessons learned from completed disaster responses.
OCHA’s Geneva offices are continually monitoring geologic and meteorological conditions, as
well as major news services, for early recognition or notification of emerging disasters. Working with
UN resident coordinators, country teams, and regional disaster response advisers, OCHA maintains
close contact with disaster-prone countries in advance of and during disaster events. OCHA’s Regional
Disaster Response Advisers work with national governments to provide technical, strategic, and training assistance. They also provide this assistance to other UN agencies and regional organizations to
improve international disaster management capacity.
OCHA INFORMATION TOOLS AND SERVICES
Clearly, information is key to disaster management, and information must be timely and accurate to be
useful. This is especially true in the case of early warning and disaster prevention initiatives. OCHA
maintains several information management activities in support of its humanitarian efforts and provides
systems to collect, analyze, disseminate, and exchange information. These functions are performed
jointly by the Early Warning and Contingency Planning Unit, the ReliefWeb project, the Field Information Support Section, and the Integrated Regional Information Networks.
DEPARTMENT OF ECONOMIC AND SOCIAL AFFAIRS
The Department of Economic and Social Affairs (DESA) is another component within the Secretariat
that addresses disaster management, primarily regarding pre-disaster capacity building. DESA
addresses a full range of issues in three general areas:
• It compiles, generates, and analyzes a wide range of economic, social, and environmental data and
information from which Member States draw to review common problems and evaluate policy options.
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• It facilitates the negotiations of Member States in many intergovernmental bodies on joint courses
of action to address ongoing or emerging global challenges.
• It advises national governments on translating UN-developed policy frameworks into countrylevel programs and, through technical assistance, helps build national capacities.
This final area is where DESA addresses disaster management activities within its Division for
Sustainable Development. As part of this effort, DESA launched a plan of action during the 2002
World Summit on Sustainable Development in Johannesburg, South Africa, that included commitments to disaster and vulnerability reduction. See exhibit 10.2 for more information on this plan of
action.
The UN Center for Regional Development (UNCRD) is another component of DESA that addresses
disaster management issues. Through its headquarters in Nagoya, Japan, and its regional offices in
Nairobi, Kenya, and Bogotá, Colombia, UNCRD supports training and research on regional
EXHIBIT 10.2 CHAPTER IV, SECTION 37 OF THE JOHANNESBURG PLAN
OF IMPLEMENTATION
An integrated, multi-hazard, inclusive approach to address vulnerability, risk assessment, and disaster management, including prevention, mitigation, preparedness, response, and recovery, is an essential element of a safer world in the twenty-first
century. Actions are required at all levels to:
1. Strengthen the role of the International Strategy for Disaster Reduction and encourage the international community to
provide the necessary financial resources to its Trust Fund;
2. Support the establishment of effective regional, subregional, and national strategies and scientific and technical institutional support for disaster management;
3. Strengthen the institutional capacities of countries and promote international joint observation and research, through
improved surface-based monitoring and increased use of satellite data, dissemination of technical and scientific knowledge, and the provision of assistance to vulnerable countries;
4. Reduce the risks of flooding and drought in vulnerable countries by, [among other things], promoting wetland and
watershed protection and restoration, improved land-use planning, improving and applying more widely techniques
and methodologies for assessing the potential adverse effects of climate change on wetlands and, as appropriate,
assisting countries that are particularly vulnerable to those effects;
5. Improve techniques and methodologies for assessing the effects of climate change, and encourage the continuing
assessment of those adverse effects by the Intergovernmental Panel on Climate Change;
6. Encourage the dissemination and use of traditional and indigenous knowledge to mitigate the impact of disasters and
promote community-based disaster management planning by local authorities, including through training activities
and raising public awareness;
7. Support the ongoing voluntary contribution of, as appropriate, NGOs, the scientific community, and other partners in
the management of natural disasters according to agreed, relevant guidelines;
8. Develop and strengthen early warning systems and information networks in disaster management, consistent with the
International Strategy for Disaster Reduction;
9. Develop and strengthen capacity at all levels to collect and disseminate scientific and technical information, including
the improvement of early warning systems for predicting extreme weather events, especially El Niño/La Niña, through
the provision of assistance to institutions devoted to addressing such events, including the International Center for the
Study of the El Niño phenomenon;
10. Promote cooperation for the prevention and mitigation of, preparedness for, response to, and recovery from major
technological and other disasters with an adverse impact on the environment in order to enhance the capabilities of
affected countries to cope with such situations.
Source: UNDESA, 2004.
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development issues and facilitates information dissemination and exchange. UNCRD maintains a
Disaster Management Planning Office in Hyogo, Japan, that researches and develops communitybased, sustainable projects for disaster management planning and capacity-building in developing
countries. The Hyogo office also runs the Global Earthquake Safety Initiative, designed to improve risk
recognition and reduction in 21 cities around the world.
THE REGIONAL COMMISSIONS
Five regional economic commissions are within the Economic and Social Council. The secretariats of
these regional commissions are part of the UN Secretariat and perform many of the same functions
(including the disaster management functions listed earlier). The five commissions promote greater
economic cooperation in the world and augment economic and social development. As part of their
mission, they initiate and manage projects that focus on disaster management. While their projects
primarily deal with disaster preparedness and mitigation, they also work in regions that have been
affected by a disaster to ensure that economic and social recovery involves adequate consideration of
risk reduction measures. The five regional commissions are:
• The Economic and Social Commission for Asia and the Pacific (ESCAP)
• The Economic Commission for Latin America and the Caribbean (ECLAC)
• The Economic Commission for Europe (ECE)
• The Economic Commission for Africa (ECA)
• The Economic and Social Commission for Western Asia (ESCWA)
UN AGENCIES AND PROGRAMS
THE UN DEVELOPMENT PROGRAMME
In response periods of disasters, the United Nations Development Programme (UNDP) sees that development does not cease during emergencies. If relief efforts are to contribute to lasting solutions, sustainable human development must continue to be vigorously supported, complementing emergency
action with new curative initiatives that can help prevent a lapse into crisis. (UN, 2000)
The UNDP was established in 1965 during the UN Decade of Development to conduct investigations into private investment in developing countries, to explore the natural resources of those countries, and to train the local population in development activities such as mining and manufacturing. As
the concept and practice of development expanded, the UNDP assumed much greater responsibilities
in host countries and in the UN as a whole.
The UNDP was not originally considered an agency on the forefront of international disaster management and humanitarian emergencies because, while it addressed national capacities, it did not focus
specifically on the emergency response systems (previously considered to be the focal point of disaster
management). However, as mitigation and preparedness received their due merit, UNDP gained
increased recognition for its vital risk reduction role.
Capacity building has always been central to the UNDP’s mission in terms of empowering host
countries to be better able to address issues of national importance, eventually without foreign assistance. International disaster management gained greater attention as more disasters affected larger
populations and caused greater financial impacts. Developing nations, where the UNDP worked, faced
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the greatest inability to prepare for and/or respond to these disasters, largely as a result of the development trends described in chapter 1. UNDP’s projects have shifted toward activities that indirectly fulfill
mitigation and preparedness roles. For instance, projects seeking to strengthen government institutions
also improve those institutions’ capacities to respond with appropriate and effective policy, power, and
leadership in the wake of a disaster.
UNDP fully recognizes that disaster management must be viewed as integral to their mission in the
developing world as well as to civil conflict and CHE scenarios. There are implicit similarities between
UNDP ideals and those of agencies whose goals specifically aim to mitigate and manage humanitarian
emergencies.
UNDP work links disaster vulnerability to a lack of or a weak infrastructure, poor environmental
policy, land misuse, and growing populations in disaster-prone areas. When disasters occur, a country’s
national development, which the UNDP serves to promote, can be set back years, if not decades. Even
small- to medium-size disasters in the least developed countries can “have a cumulative impact on
already fragile household economies and can be as significant in total losses as the major and internationally recognized disasters” (UNDP 2001). It is the UNDP’s objective to “achieve a sustainable
reduction in disaster risks and the protection of development gains, reduce the loss of life and livelihoods due to disasters, and ensure that disaster recovery serves to consolidate sustainable human development” (UN 2000).
In 1995, as part of the UN’s changing approach to humanitarian relief, the Emergency Response
Division (ERD) was created within the UNDP, augmenting the organization’s role in disaster
response. Additionally, 5 percent of UNDP budgeted resources were allocated for quick response
actions in special development situations by ERD teams, thus drastically reducing bureaucratic
delays. The ERD was designed to create a collaborative framework among the national government,
UN agencies, donors, and NGOs that immediately respond to disasters, provide communication and
travel to disaster management staff, and distribute relief supplies and equipment. It also deploys to
disaster-affected countries for 30 days to create a detailed response plan on which the UNDP response
is based.
In 1997, under the UN Programme for Reform, the mitigation and preparedness responsibilities of
the OCHA Emergency Relief Coordinator were formally transferred to the UNDP. In response, the
UNDP created the Disaster Reduction and Recovery Programme (DRRP) within the ERD. Soon after,
the UNDP again reorganized, creating the Bureau of Crisis Prevention and Recovery (BCPR) with an
overarching mission of addressing a range of non-response-related issues:
• Disaster risk reduction and climate change management
• Conflict prevention
• Rule of law, justice, and security in countries affected by crises
• Women in conflict prevention, peacebuilding, and recovery
• Immediate crisis response
• Livelihoods and economic recovery
• Crisis governance
BCPR helps UNDP country offices prepare to activate and provide faster and more effective disaster response and recovery. It also works to ensure that UNDP plays an active role in the transition
between relief and development.
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UNDP’s disaster management activities focus primarily on the development-related aspects of risk
and vulnerability and on capacity-building technical assistance in all four phases of emergency management. It emphasizes:
• Incorporating long-term risk reduction and preparedness measures in normal development planning and programs, including support for specific mitigation measures where required;
• Assisting in the planning and implementation of post-disaster rehabilitation and reconstruction,
including defining new development strategies that incorporate risk-reduction measures relevant
to the affected area;
• Reviewing the impact of large settlements of refugees or displaced persons on development, and
seeking ways to incorporate the refugees and displaced persons in development strategies;
• Providing technical assistance to the authorities managing major emergency assistance operations
of extended duration (especially in relation to displaced persons and the possibilities for achieving
durable solutions in such cases).
UNDP spends between $150 and $200 million each year on disaster risk reduction projects. The
focus of these projects has included the establishment or strengthening of early warning systems, the
conduct of risk assessments and drafting of hazard maps, and the establishment of national disaster
management agencies. Through their projects, UNDP staff help to strengthen national and regional
capacities by ensuring that new development projects consider known hazard risks, that disaster impacts
are mitigated and development gains are protected, and that risk reduction is factored into disaster
recovery.
Following conflict, crises, and disasters, countries must transition from response to recovery. Many
countries are unable to manage the difficult and widespread needs of recovery on their own, as they
may have experienced widespread loss of infrastructure and services. Displaced persons and refugees
may have little to return to, and economies may be damaged or destroyed. BCPR operates during the
period when the response or relief phase of the disaster has ended but recovery has not fully commenced (sometimes referred to as the “early recovery period”).
Sustainable risk reduction is central to the UNDP recovery mission. The Bureau recognizes that
local expertise in risk management and reduction may not be available, and that the technical assistance
they provide may be the only option these communities have to increase their resilience to future disasters. This program has proved effective in many countries’ recovery operations, including Cambodia
after three decades of civil war, Afghanistan after the 2001 conflict, and Gujarat, India, after the 2001
earthquake. The top recipients of UNDP crisis prevention and recovery funding include:
• Afghanistan ($616.5 million)
• Brazil ($63.1 million)
• South Sudan ($54.5 million)
• Pakistan ($40.0 million)
• Sudan ($36.8 million)
• Bangladesh ($34.3 million)
• Colombia ($30.6 million)
• Bosnia and Herzegovina ($17.6 million)
• Mozambique ($14.3 million)
• Liberia ($14.2 million) (UNDP 2014)
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To meet these recovery priorities, five support services have been developed to assist the UNDP
Country Offices and other UNDP/UN agencies to identify areas where BCPR can provide assistance.
These support services include:
• Early assessment of recovery needs and the design of integrated recovery frameworks. This
includes assessing development losses caused by conflict or natural disaster, the need for socioeconomic and institutional recovery, identification of local partners, and the need for capacity
building and technical assistance.
• Planning and assistance in area-based development and local governance programs. Area-based
development and local governance programs play key roles in recovery from conflict because they
tailor emergency, recovery, and development issues across a country area by area, based on differing needs and opportunities. Area-based development helps bring together different actors at the
operational level, promoting enhanced coordination, coherence, and impact at field level. Areabased development is often seen as the core mechanism that most benefits reintegration.
• Developing comprehensive reintegration programs for IDPs, returning refugees, and ex-combatants. Internal displacement, returning refugees, and demobilized former combatants create a huge
need for in-country capacity building on different levels. Protection and security become serious
issues, and efforts to sustainably reintegrate these populations into their host communities are
critical. BCPR provides expertise on reintegration of IDPs, returnees, and ex-combatants, including capacity building benefiting both the returnees and the formerly displaced, as well as their
host communities, through activities such as income generation, vocational training, and other
revitalization activities.
• Supporting economic recovery and revitalization. One main characteristic of disasters and conflict
is their devastating impact on the local and national economies. Livelihoods are destroyed through
insecurity, unpredictability, market collapse, loss of assets, and rampant inflation. For recovery to
be successful, these issues need to be well understood from the outset and addressed accordingly.
• Supporting capacity building, coordination, resource mobilization, and partnerships. Protracted
conflict and extreme disasters tend to create political stressors that temporarily exceed the capacities of UN Country Offices and other NGO partners. However, many recovery needs must be
addressed right away to ensure that recovery sets out on a sustainable course. BCPR offers several
services to accommodate the needs of this intense phase through the provision of surge capacity
and short- to medium-term staff, assistance in resource mobilization within specific fundraising
and coordination frameworks (such as the CAP), and partnership building.
When required to assist in recovery operations, BCPR may deploy a special Transition Recovery
Team (TRT) to supplement UNDP operations in the affected country. The focus for these teams varies
according to specific needs. For instance, when neighboring countries have interlinked problems (such
as cross-border reintegration of ex-combatants and displaced persons), the TRT may support a subregional approach to recovery.
It is important to note that the UNDP has no primary role in the middle of a CHE peacekeeping
response, only a supportive one in helping to harmonize development with relief. During recovery and
reconstruction, together with others, they take the lead.
In addition to the previously mentioned roles and responsibilities, the UNDP leads several interagency working groups. One such group (which consists of representatives from the WFP, WHO, the
Food and Agriculture Organization [FAO], the UN Populations Fund, and UNICEF) develops
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principles and guidelines to incorporate disaster risk into the Common Country Assessment and the UN
Development Assistance Framework. The International Strategy for Disaster Reduction Working
Group on Risk, Vulnerability, and Disaster Impact Assessment sets guidelines for social impact assessments. UNDP also coordinates a Disaster Management Training Programme in Central America, runs
the conference “The Use of Microfinance and Micro-Credit for the Poor in Recovery and Disaster
Reduction,” and has created a program to elaborate financial instruments to enable the poor to manage
disaster risks.
The UNDP has several reasons for its success in fulfilling its roles in the mitigation, preparedness,
and recovery for natural and man-made disasters. First, as a permanent in-country office with close ties
to most government agencies, activities related to coordination and planning, monitoring, and training
are simply an extension of ongoing relationships. The UNDP works in the country before, during, and
long after the crisis. It is able to harness vast first-hand knowledge about the situations leading up to a
crisis and the capacity of the government and civil institutions to handle a crisis, and can analyze what
weaknesses must be addressed by the responding aid agencies. In addition, its neutrality dispels fears
of political bias.
Second, the UNDP functions as a coordinating body of the UN agencies concerned with development, so when crisis situations appear, there is an established, stable platform from which it may lead.
From this leadership vantage, it can (theoretically) assist in stabilizing incoming relief programs of
other responding UN bodies, such as the WFP, UNICEF, the Department of Humanitarian Affairs, and
the UNHCR. Once the emergency phase of the disaster has ended and OCHA prepares to leave, UNDP
is in a prime position to facilitate the transition from response efforts to long-term recovery.
And third, the UNDP has experience dealing with donors from foreign governments and development banks, and can therefore handle the outpouring of aid that usually results during the relief and
recovery period of a disaster. This contributes greatly to reducing levels of corruption and increasing
the cost-effectiveness of generated funds. In several recent events, the UNDP has established formalized funds to handle large donor contributions, which have been used for long-term post-disaster reconstruction efforts. (See exhibits 10.3 and 10.4).
When a major disaster operation requires extended efforts, the UNDP may accept and administer
special extra-budgetary contributions to provide the national government with both technical and material assistance, in coordination with OCHA and other agencies involved in the UN Disaster Management Team (DMT). An example of such assistance includes the establishment and administration of a
UN DMT Emergency Information and Coordination (EIC) Support Unit. Special grants of up to $1.1
million also may be provided, allocated from the Special Programme Resources funds for technical
assistance to post-disaster recovery efforts following natural disasters. See exhibit 10.5 for information
about the UNDP Capacity for Disaster Reduction Initiative (CADRI).
UNICEF
Like most major UN agencies, UNICEF (formerly known as the United Nations International Children’s Emergency Fund) was established in the aftermath of World War II. Its original mandate was to
aid children suffering in postwar Europe, but this mission has been expanded to address the needs of
women and children throughout the world. UNICEF is mandated by the General Assembly to advocate
for children’s rights, to ensure that each child receives at least the minimum requirements for survival,
and to increase children’s opportunities for a successful future. Under the Convention on the Rights of
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EXHIBIT 10.3 UNDP IN SRI LANKA – A CHE RESPONSE AND RECOVERY
OPERATION
On May 19, 2009, the government of Sri Lanka declared military victory over the rebel Liberation Tigers of Tamil Eelam,
formally ending a decades-long armed conflict. In the wake of the war, UNDP demonstrated that developing and building
on strong partnerships is key to ensuring a fast and well-targeted response. An estimated 300,000 IDPs gathered in camps
during the first half of 2009. Many of them lacked basic documentation, making it difficult to access basic services and
prove claims to land and assets.
UNDP assisted the registrar general to establish a temporary office inside one of the largest camps with capacity to
process 50 birth and marriage certificates per day, complemented by additional staffing capacity in Colombo to handle the
increased number of document requests. Between July and December the camp office processed close to 10,000 requests,
prioritizing those from children who needed identification to sit for national school exams. UNDP also supported mine
action coordination and management. Survey and clearance activities advanced rapidly, and by the end of 2009 a total of
879 square kilometers of land had been released for resettlement. This allowed the pace of returns and resettlements to
increase exponentially in the fourth quarter of 2009, with over 150,000 IDPs returning or resettling.
In the Eastern Province, FAO, ILO, WFP, UNHCR, and UNDP continued to champion the “delivering as one”
approach to support community-based recovery and contribute to the stability of returnees in selected divisions of the East.
As the funding conduit, UNDP was in charge of the overall coordination of project implementation while also directly
implementing small-scale infrastructure construction such as roads, wells, and community centers (which provided a space
for cooperatives and trading groups to come together).
The selection of target communities was informed through village profile maps and data generated by UNHCR, while
WFP provided six months’ worth of food supply rations, until the foundations for agricultural self-reliance and food
security for resettled families were laid. UNDP also launched a new initiative in 2009 to foster partnerships between Sri
Lanka’s manufacturers and resettled communities. UNDP, with its presence in the field, played a catalytic role, identifying
the resettled communities, facilitating meetings with the large consumer companies, securing fair and long-term contracts,
and supporting training as well as supply of equipment to improve production. Through this project, 450 farming and fishing families in the North and the East have secured income for the next two to three years.
Based on: UNDP, 2010.
EXHIBIT 10.4 ROLE OF UNDP IN BANGLADESH AFTER CYCLONE AILA,
2009
On May 25, 2009, Cyclone Aila hit southern Bangladesh, resulting in widespread tidal flooding and the destruction of
large parts of the region’s protective embankment network. Economic losses were estimated at $106 million and more than
29,000 families were affected in Satkhira, the district that had also suffered the most from Cyclone Sidr in 2007. Many of
the affected were still recovering from the impact of the earlier disaster. The government of Bangladesh provided emergency relief and planned for the reconstruction of the damaged embankment network, but many of the most vulnerable
families have been unable to return to their homes, which remain submerged.
With funding from the UNDP Bureau of Crisis Prevention and Recovery (BCPR), an early recovery program focused
on livelihoods was developed, covering all villages in the worst-affected part of Satkhira. The program included a cash-forwork component that built on self-recovery efforts of affected families. This resulted in the creation of an estimated 37,400
work days devoted to road repair and ground elevation. The program also included support for the restoration of essential
community infrastructure; support to local small enterprises through working capital grants for carpentry tools, sewing
machines, and tea stall equipment; and assistance for home-based income-generating activities, such as vegetable cultivation, crab fattening, handicrafts, poultry rearing, and fish drying. This effort benefited more than 4,000 families.
Based on: UNDP, 2010.
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EXHIBIT 10.5 THE UN CAPACITY FOR DISASTER REDUCTION
INITIATIVE (CADRI)
CADRI was created in 2007 as a joint program of the UNDP Bureau for Crisis Prevention and Recovery (UNDP/BCPR),
the United Nations Office for the Coordination of Humanitarian Affairs (OCHA), and the secretariat of the International
Strategy for Disaster Reduction (ISDR). Recognizing that capacity development is a cross-cutting activity for disaster risk
reduction as stipulated in the Hyogo Framework (HF), CADRI’s creation is designed to support all five priorities of the
HF. CADRI was formally launched by the three organizations at the Global Platform for Disaster Risk Reduction Meeting,
June 2007, Geneva.
CADRI succeeds the UN Disaster Management Training Programme (DMTP), a global learning initiative, which
trained United Nations, government, and civil society professionals between 1991 and 2006. DMTP is widely known for
its pioneering work in developing high-quality resource materials on a wide range of disaster management and training
topics. More than 20 trainers’ guides and modules were developed and translated.
CADRI’s design builds on the success and lessons learned from the DMTP and reflects the significant evolution in the
training and learning field since the start of the DMTP, particularly regarding advances in technology for networking and
learning purposes. CADRI’s design also reflects the critical role that the UN system plays at the national level in supporting governments’ efforts to advance disaster risk reduction. In the context of the UN’s increasingly important role, CADRI
provides capacity enhancement services to the UN system at the country level as well as to governments. These include
learning and training services and capacity development services to support governments to establish the foundation for
advancing risk reduction.
Based on: CADRI, 2010.
the Child (CRC), a treaty adopted by 191 countries, the UNHCR holds broad-reaching legal authority
to carry out its mission.
As of late 2014, UNICEF maintains country offices in more than 190 different nations. This is probably its greatest asset in terms of the agency’s disaster management capacity. Preparedness and mitigation for disasters among its target groups is a priority, with programs able to address both local-level
action and national-level capacity building. In keeping with the recommendations laid out by the Yokohama Strategy and Plan of Action for a Safer World, UNICEF incorporates disaster reduction into its
national development plans. It also considers natural hazard vulnerability and capacity assessments
when determining overall development needs to be addressed by UN country teams.
Through public education campaigns, UNICEF works to increase public hazard awareness and
knowledge and participation in disaster management activities. UNICEF country offices include activities that address these pre-disaster needs in their regular projects. For example, they develop education
materials required for both children and adults, and then design websites so educators and program
directors can access or download these materials for use in their communities.
In situations of disaster or armed conflict, UNICEF is well poised to serve as an immediate aid
provider to its specific target groups. Its rapid-response capacity is important because vulnerable groups
are often the most marginalized in terms of aid received. UNICEF works to ensure that children have
access to education, health care, safety, and protected child rights. In the response and recovery periods
of humanitarian emergencies, these roles expand according to victims’ needs. (In countries where UNICEF has not yet established a permanent presence, the form of aid is virtually the same; however, the
timing and delivery are affected, and reconstruction is not nearly as comprehensive.)
The UNICEF Office of Emergency Programmes (EMOPS), which has offices in New York and
Geneva, maintains overall responsibility for coordinating UNICEF’s emergency management activities.
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EXHIBIT 10.6 UNICEF OPERATIONS IN THE OCCUPIED PALESTINIAN
TERRITORY, 2009
By the end of the three weeks of fighting in early 2009 in Gaza, 350 children had been killed and 1,600 injured, and much
of Gaza’s infrastructure, including schools, health facilities, and vital infrastructure for water and sanitation, had been
damaged.
UNICEF was on hand to provide humanitarian support. It led the collective efforts of UN agencies on the ground to
restore education, provide emergency water supplies and sanitation, maintain nutritional standards, and protect children
from further harm.
From the early days, UNICEF made sure that first aid and emergency medical kits, essential drugs, and water purification
tablets flowed into Gaza. Emergency education supplies such as classroom tents and School-in-a-Box kits maintained some sense
of continuity and normalcy for children. UNICEF and its partners were able to reach more than 200,000 school-age children.
UNICEF raised global awareness of the harm being done to children through extensive media coverage and advocacy.
Attention was also raised by the visits of the Special Representative of the Secretary–General for Children and Armed
Conflict, Radhika Coomaraswamy—who called for the protection of children—and UNICEF Executive Director Ann M.
Veneman, as well as Goodwill Ambassadors Mia Farrow and Mahmoud Kabil.
UNICEF also extended psychosocial services, including in-depth counselling and structured recreational activities,
across Gaza. Training reinforced the capacities of psychosocial workers to protect children and help them heal. Radio
programmes and 200,000 leaflets designed for children warned of the risks of mines and unexploded ordnance left behind.
UNICEF water tankers ensured a steady supply of clean drinking water to 135 schools with 110,000 students, while
desalination units were installed to rid water of dangerous concentrations of chlorides and nitrates. To thwart the risk of
acute malnutrition, UNICEF worked through 53 health clinics for mothers and children to offer supplements of micronutrients and fortified food.
The quality and supply of teaching materials were improved through UNICEF’s provision of math and science teaching kits. Programmes for vulnerable adolescents concentrated on supporting remedial learning, relieving stress, and providing life skills-based education and opportunities to engage in civic activities. Through UNICEF’s systematic advocacy
with partner organizations, almost half the attendees were girls.
Source: UNICEF, 2010.
EMOPS works closely with the UNICEF Programme Division, managing the UNICEF Emergency Programme Fund (EPF; see the following section) and ensuring close interagency coordination with other
participating humanitarian organizations. In this role, UNICEF is also in the position to act as coordinator in specific areas in which it is viewed as the sector leader. For instance, UNICEF was tasked with
leading the international humanitarian response in the areas of water and sanitation, child protection, and
education for the 2004 Asia tsunami and earthquake response. (In Aceh province alone, more than 250
agencies addressed water and sanitation issues.) UNICEF maintains that humanitarian assistance should
include programs aimed specifically at child victims. Its relief projects generally provide immunizations,
water and sanitation, nutrition, education, and health resources. Women are recipients of this aid as well,
because UNICEF considers women to be vital in the care of children. (See exhibit 10.6.)
To facilitate an immediate response to an emergency situation, UNICEF is authorized to divert
either $200,000 or $150,000 from country program resources (depending on whether the country program’s annual budget is above or below $2 million, respectively) to address immediate needs. If the
disaster is so great it affects existing UNICEF programs operating in the country, the UNICEF representative can shift these programs’ resources once permission is received from the national government
and UNICEF Headquarters. UNICEF also maintains a $75 million global EPF, which provides funding
for initial emergency response activities.
UN Agencies and Programs
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THE WORLD FOOD PROGRAMME
The World Food Programme (WFP) is the UN agency tasked with addressing hunger-related emergencies. It was created in 1961 by a resolution adopted by the UN General Assembly and the UN FAO.
Today, the program operates in 75 countries and maintains eight regional offices. In the year 2013
alone, the WFP provided 3.1 million metric tons of food aid to 80.9 million people in 75 countries
through its relief programs. Over the course of its existence, the WFP has provided more than 70 million metric tons of food to countries worldwide.
WFP was an early member of the former Inter-Agency Task Force for Disaster Reduction (see
below) and maintains disaster risk reduction as one of its priority areas, focusing on reducing the
impact of natural hazards on food security, especially for the vulnerable. The WFP Policy on Disaster
Risk Reduction and Management, approved in 2011, highlights this role as being central to the organization’s work. WFP DRR programs seek to build resilience and reduce risk through such activities as
soil and water conservation, rehabilitating infrastructure, and training community members in disaster
risk management and livelihood protection. The MERET project in Ethiopia is one example. This program targets food-insecure communities in degraded fragile ecosystems prone to drought-related food
crises. Other programs maintained by WFP include:
• R4 Resilience Initiative: The Rural Resilience Initiative (R4) is a partnership between WFP and
Oxfam America, with support from global reinsurance company Swiss Re, to test a new, comprehensive disaster risk reduction and climate change adaptation approach. The program allows
cash-poor farmers and rural households to pay for index insurance with their own labor, so they
can both manage and take risks to build resilient livelihoods.
• Livelihoods Early Assessment and Protection (LEAP): WFP has been assisting the government
of Ethiopia to develop an integrated risk management system through the Livelihoods Early
Assessment and Protection (LEAP) project. LEAP provides early warning data on food security
that allows a rapid scale-up of the “National Productive Safety Net Programme” by activating
contingency plans. When a serious drought or flood is detected, resources from a US$160 million
contingency fund are made immediately available to ensure early and more effective emergency
response, thereby protecting livelihoods and saving lives.
• The Joint WFP/IFAD Weather Risk Management Facility (WRMF): WRMF supports the development of innovative weather and climate risk management tools, such as weather index insurance
(WII). The goal of these programs is to improve quality-of-life issues and to reduce the incidence
of food shortages. This program was launched in 2008 through funding from the Bill and Melinda
Gates Foundation. It has been piloted in China and Ethiopia.
WFP has established a steering committee for disaster mitigation to help its offices integrate
these activities into regular development programs. Examples of mitigation projects that focus on
food security include water harvesting in Sudan (to address drought), the creation of grain stores
and access roads in Tanzania, and the creation of early warning and vulnerability mapping
worldwide.
Because food is a necessity for human survival and is considered a vital component of development,
a lack of food is, in and of itself, an emergency situation. The WFP works throughout the world to assist
the poor who do not have sufficient food so they can survive “to break the cycle of hunger and poverty.”
Hunger crises are rampant—more than 1 billion people across the globe receive less than the minimum
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standard requirement of food for healthy survival. Hunger may exist on its own, or it may be a secondary effect of other hazards such as drought, famine, and displacement.
The WFP constantly monitors the world’s food security situation through its international Food Aid
Information System (FAIS). Using this system, WFP tracks the flow of food aid around the world
(including emergency food aid) and provides the humanitarian community with an accurate inventory
and assessment of emergency food-stock quantities and locations. This database also includes relevant
information that would be needed in times of emergency, such as anticipated delivery schedules and the
condition and capabilities of international ports.
In rapid-onset events such as natural disasters, the WFP is a major player in the response to the
immediate nutritional needs of the victims. Food is transported to the affected location and delivered to
storage and distribution centers. (See figure 10.3.) The distribution is carried out according to preestablished needs assessments performed by OCHA and the UNDP. The WFP distributes food through
contracted NGOs that have the vast experience and technical skills to plan and implement transportation, storage, and distribution. The principal partners in planning and implementation are the host
FIGURE 10.3
Rice donated by Japan is loaded by the World Food Programme onto 72 WFP trucks to feed survivors of the
2004 Asia tsunami and earthquake events
Sources: Skullard, 2005; WFP, 2005.
UN Agencies and Programs
615
governments, who must request the WFP aid, unless the situation is a CHE without an established
government, in which case the UN Secretary–General makes the request. The WFP works closely with
all responding UN agencies to coordinate an effective and broad-reaching response, because food
requirements are so closely linked to every other vital need of disaster victims. (See exhibit 10.7.) Figure 10.4 is an infographic showing how WFP responds in an emergency situation.
During the reconstruction phase of a disaster, the WFP often must continue food distribution. Rehabilitation projects are implemented to foster increased local development, including the provision of food aid
to families, who, as a result, will have extra money to use in rebuilding their lives; and food-for-work
programs, which break the chains of reliance on aid as well as provide an incentive to rebuild
communities.
WFP administers the International Emergency Food Reserve (IEFR), which was originally
designed to store a minimum of 500,000 tons of cereals. This program has not enjoyed the full
support of donors as agreed in its creation, however, and as such, annual funding levels have fluctuated significantly. If supported, IEFR would manage separate resources provided by donors to
address long-term operations such as CHEs, and would dedicate $15 million from its general
resources for emergency assistance in addition to $30 million for long-term emergency assistance.
The program’s Immediate Response Account is a cash account maintained for rapid purchase and
delivery of food in emergency situations. Resources would be purchased from local markets
(whenever possible), thereby ensuring food arrives sooner than other aid, which must move through
regular channels.
EXHIBIT 10.7 WFP DISASTER RESPONSE SYSTEM
WFP response begins at the request of the affected country’s government.
1. In the early days of an emergency, while the first food supplies are being delivered, Emergency Assessment teams are
sent in to quantify exactly how much food assistance is needed for how many beneficiaries and for how long. They
must also work out how food can best be delivered to the hungry.
2. Equipped with the answers, WFP draws up an Emergency Operation (EMOP), including a plan of action and a budget.
[The EMOP] lists who will receive food assistance, what rations are required, the type of transport WFP will use, and
which humanitarian corridors lead to the crisis zone.
3. Next, WFP launches an Appeal to the international community for funds and food aid. The agency relies entirely on
voluntary contributions to finance its operations, with donations made in cash, food, or services. Governments are the
biggest single source of funding. [More than 60 governments support WFP’s worldwide operations.]
4. As funds and food start to flow, WFP’s logistics team works to bridge the gap between the donors and the hungry. [In
2012, the agency delivered 4.8 million metric tons of food aid by air, land, and sea.] (WFP 2014)
Ships carry the largest WFP cargo, their holds filled to the brim with 50,000 tons or more of grain, cans of cooking oil,
and canned food; the agency has 40 ships on the high seas every day, frequently rerouting vessels to get food quickly to
crisis zones. In extreme environments, WFP also uses the skies to reach the hungry, airlifting or airdropping food directly
into disaster zones.
Before the aid can reach its country of destination, logistics experts often need to upgrade ports and secure warehouses.
Trucks usually make the final link in WFP’s food chain, transporting food aid along the rough roads that lead to the hungry. Where roads are impassable or nonexistent, WFP relies on less conventional forms of transport: donkeys in the Andes,
speedboats in the Mozambique floods, camels in Sudan, and elephants in Nepal. At this stage, local community leaders
work closely with WFP to ensure rations reach the people who need it most: pregnant mothers, children, and the elderly.
Based on: WFP, 2005.
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FIGURE 10.4
Infographic detailing how WFP responds to disasters
Source: WFP, 2014.
UN Agencies and Programs
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THE WORLD HEALTH ORGANIZATION
The World Health Organization (WHO) was proposed during the original meetings to establish the UN
system in San Francisco in 1945. In 1946, at the United Health Conference in New York, the WHO
constitution was approved, and it was signed on April 7, 1946 (World Health Day). WHO proved its
value by responding to a cholera epidemic in Egypt months before the epidemic was officially
recognized.
WHO serves as the central authority on sanitation and health issues throughout the world. It works
with national governments to develop medical and health care capabilities and assist in the suppression
of epidemics. WHO supports research on disease eradication and provides expertise when requested. It
provides training and technical support and develops standards for medical care. WHO was an early
member of the former Interagency Task Force for Disaster Reduction (see below), and continues to
assist local and national governments as well as regional government associations with health-related
disaster mitigation and preparedness issues. It does this primarily by providing education and technical
assistance to government public health officials about early detection, containment, and treatment of
disease and the creation of public health contingency plans. WHO activities address primary hazards,
such as epidemics (e.g., avian influenza, malaria, dengue fever, SARS, swine flu, and MERS/CoV), and
the secondary health hazards that accompany most major disasters. Through their website and collaboration with various academic institutions, WHO has also worked to advance public health disaster mitigation and preparedness research and information exchange.
The WHO Director–General is a member of the IASC and the IASC Working Group. In those
capacities, the WHO recommends policy options to resolve the more technical and strategic challenges
of day-to-day emergency operations in the field. To incorporate public health considerations in UN
interagency contingency planning and preparedness activities, the WHO also participates in the IASC
Task Force on Preparedness and Contingency Planning.
The WHO Emergency Risk Management and Humanitarian Response department was created to
enable WHO to work closely with Member States, international partners, and local institutions in order
to help communities prepare for, respond to, and recover from emergencies, disasters, and crises. The
Emergency Response Framework (ERF) was developed in 2013 to clarify the WHO role and their
responsibilities in emergency situations (WHO 2013).
In the event of a disaster, WHO responds in several ways to address victims’ health and safety. Most
important, it provides ongoing monitoring of diseases traditionally observed within the unsanitary conditions of disaster aftermath. WHO also provides technical assistance to responding agencies and host
governments establishing disaster medical capabilities and serves as a source of expertise. It assesses
the needs of public health supplies and expertise and appeals for this assistance from its partners and
donor governments.
Per the ERF, WHO is obligated to respond to emergencies under several conventions and agreements, including the International Health Regulations and the Interagency Steering Committee.
The key functions of HAC in times of crises are:
• Measure health-related problems and promptly assess health needs of populations affected by
crises, identifying priority causes of disease and death;
• Support Member States in coordinating action for health;
• Ensure that critical gaps in health response are rapidly identified and filled; and
• Revitalize and build capacity of health systems for preparedness and response.
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When other government agencies, private medical facilities, or NGOs cannot meet the public health
needs of the affected population, WHO’s country-level Emergency Response Team and international
Emergency Support Teams bring together expertise in epidemics, logistics, security coordination, and
management, collaborating with UN agencies participating in response and recovery. WHO has several
bilateral agreements with other UN agencies and NGOs (including the Red Cross and Red Crescent
Movement) and coordinates the Interagency Medical/Health Task Force (IMTF), an informal forum
that provides guidance on technical and operational health challenges in humanitarian crises.
The WHO Global Emergency Management Team (GEMT) was created in 2011 to lead the planning, management, implementation, monitoring, and evaluation of WHO’s emergency work (including
national preparedness, institutional readiness, and emergency response for disasters that exhibit public
health consequences.) The GEMT is made up of staff from both WHO headquarters and regional office
Directors responsible for disaster risk management issues (e.g., preparedness, surveillance, alert, and
response). As needed, other relevant staff are invited to join GEMT efforts.
GEMT focuses on all-hazards emergency risk management, notably that of leadership on the Health
Cluster. When technical expertise beyond that held by the team’s members is needed, the Global Emergency Network (GEN), comprising Directors (or delegates) of departments and programs that have
various emergency management functions, is cons...
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