Gilles CARBONNIER Professor, IHEID

1. REFORMING THE GLOBAL HUMANITARIAN SYSTEMSummer programme on International Affairs and Multilateral Governance24 June 2008 Gilles CARBONNIER Professor, IHEID

2. Structure • What is humanitarian action? Definition; fundamental principles Operational modes Origin, evolution and current trends • Group exercise Current trends & challenges; Iraq • Reforming the humanitarian system Coordination, funding, accountability

3. What is humanitarian action? New definition by the OECD/DAC (April 2007) Humanitarian aid aims to save lives, alleviate suffering and maintain and protect human dignity … during and in the aftermath of emergencies. It should be consistent with the principles of humanity, impartiality, neutrality and independence.  3 categories (DAC) Emergency response (material relief, food aid, coordination) Reconstruction and rehabilitation Disaster prevention and preparedness  What about protection activities?

4. Fundamental principles Substantial principles objectives • Humanity: prevent and alleviate human suffering, protect lives and dignity, guard and promote the law (IHL) • Impartiality: non-discrimination (between individuals) and proportionality (according to the needs) Derived principles means to an end • Neutrality: refrain from taking side to maintain trust, prevent political instrumentalization • Controversies around neutrality • Independence: be and act autonomously, independently from powers • Solidarity?

5. Fundamental principles Why are they necessary? Key issues • Interpretation and operalization (by donors, military, private firms, NGOs, UN, etc.) • Humanitarian interventions by States Codes of conduct and humanitarian ethics

6. Protect life and dignity Mobilization Support Alleviate suffering Prevent disasters Rebuild Denounciation Persuasion Substitution Prevent and sanction violations Assistance Protection Prevention Operational strategies Objectives: 5 action modes: 3 intervention types:

7. Action modes & options With regard to the authorities in charge: • Persuasion • Support • Substitution With regard to influential actors • Mobilization • Denounciation

8. Origin & evolution 19th century: Humanitarian interventions 20th century World War I & II, emergence of NGOs Cold-war freeze 1970-80s: Emergence of “without borderism” 1990s: Coming back of the State & the UN 21st century: two diverging trends - Integrated missions (Afghanistan, Irak) Whole-of-government approach - Neutral and Independent humanitarian action (NIHA)

9. Humanitarian Assistancefrom DAC Donors • Sources: Global Humanitarian Assistance, Up-date 2004-05; and 2007/8, Development Initiatives (www.globalhumanitarianassistance.org)

10. Group exercise • Why such an increase in humanitarian aid since 1990? • What are the key challenges facing the humanitarian system? • What are the specific challenges of humanitarian involvement in Iraq?

11. The humanitarian system

12. The humanitarian system The UN Family WFP, HCR, UNICEF, UNRWA, FAO, WHO, OCHA… The Red Cross/Red Crescent Movement ICRC, International Federation, >190 National Societies The NGOs mixed bag MSF, World Vision, CRS (Caritas), IRC, Care, Islamic Relief… =========== States / donors Bilateral agencies with growing operational capacities Emerging actors The military? Private contractors? Multinational companies? Private foundations?

13. Why a reform of the global humanitarian system? Proliferation of non-UN actors Coordination is the Achille’s heel of the system Poor perfomance and changing role of the UN Improve operational capacity and recover leadership Address concerns of some donors to get improved funding Increased public scrutiny and accountability requirements Show results, accountability to donors and beneficiaries, avoid « aid scandals », restore confidence in - and leadership from - the UN

14. The 3 reform pillars FINANCING Adequate, timely, predictable and flexible funding COORDINATION NYC/Geneva & field coordination for humanitarian emergencies “CLUSTER APPROACH” Adequate capacity and leadership in key sectors -->accountability

15. Humanitarian coordination Emergency Relief Coordinator (ERC, in NYC) UN USG & head of OCHA (Jan Egeland, John Holmes) Humanitarian coordinators (HC, in the field) New positions for a daunting task ! Train a new generation of HCs Too many hats? Why is the problem with coordination in change management?

16. The Cluster Approach: Accountability predicatability, partnerships 11 SECTORS LEAD AGENCY (provider of last resort) Nutrition UNICEF Water/Sanitation UNICEF Health WHO Emergency Shelter: UNHCR (IDPs) IFRC (disasters) Camp Management: UNHCR (IDPs) IOM (disaster) Protection: UNHCR (IDP) HCR - OHCHR - UNICEF (civilian residents) Early Recovery UNDP Logistics WFP Telecommunications OCHA - UNICEF - WFP

17. Financing humanitarian action Central Emergency Response Fund (CERF), 2006 Objective: $500m ($50m loans) Up to two third for emergencies (>$30m in 3-4 days) One third for forgotten crises (2 allocations every year) Pool funding In Sudan and the DRC in 2006 Un-earmarked, at the discretion of the humanitarian coordinator, evaluated in 2007 Funding vs coordination Who pays coordinate? Who pays for coordination?

18. Conclusion & challenges ahead High stakes for the UN Does the global humanitarian system remain just a fiction? A reform only for the UN? Reform & change management Need for buy-in from operational agencies, UN Member states and main donors Need for greater clarity on process and outcomes Balance between coordination and actual results in the field Integrated approaches and PRTs as a challenge to the future of the humanitarian enterprise