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humanitarian aid
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Description Page
Executive Summary 3
Introduction 4
Lesson Learned 5
Recommendations 8
Appendices 10
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Executive Summary
This paper reviews recent patterns in Irish humanitarian and other assistance, noting
the increase in scale of this assistance both in absolute and relative terms. This increase
in scale has not been matched by an increase in analysis of Irish government
humanitarian activities. This paper seeks to begin to address this gap through a review
of Irish government initiatives with respect to two particular humanitarian crises –
Sudan and Angola, and consider lessons learned that may be applicable to Ireland‟s
humanitarian assistance programme more generally.
The paper concludes that Development Co-operation Ireland has largely taken an ad
hoc and reactive approach to long-term humanitarian crises such as Sudan and Angola.
Despite an intermittent commitment to providing funds for „forgotten emergencies‟,
patterns of disbursement of humanitarian aid largely depends on short term
considerations, rather than on any long term strategic commitment of resources to
particular countries suffering from humanitarian emergencies.
This short term approach to humanitarian assistance has been combined with a „stove
pipe‟ approach by DCI funding sources that can be utilized in humanitarian
emergencies – with funding for different activities that might complement each other
(such as emergency relief, conflict resolution work, human rights and other
developmental activities) managed in different stand-alone funds without any overall
co-ordination. As a result, little thought is being given to maximizing the scope and
impact of Irish assistance in ways that might over the long term assist in addressing
underlying causes of conflict, rather than simply the horrendous humanitarian
consequences.
It is this author‟s view that Ireland needs to rethink its approach to managing its
humanitarian aid, in order to develop an approach to long term crises that seeks to
maximize the overall impact of Irish assistance and to draw together what are currently
disparate strands of Irish assistance. Detailed recommendations include the following:
Recommendations
1. DCI should develop a comprehensive strategic planning process for long term
complex emergencies
4. DCI should use the planning process and its permanent presence to improve the
overall impact of DCI‟s assistance in complex emergencies
5. The Department of Foreign Affairs should have a mechanism that allows for a
comprehensive review of Irish government activities where they are politically
sensitive and / or may impinge on humanitarian concerns
3
Introduction
Irish humanitarian assistance has grown exponentially in recent years, mirroring a
related growth in the overall development assistance programme. However, unlike
other sectors of DCI‟s portfolio, where significant innovation has taken place (for
example in the development of MAPS and HAPS programmes), the basic mechanisms
and procedures used by DCI in the disbursement of humanitarian aid have not changed
significantly.1
Such an ad hoc approach makes sense with respect to sudden onset emergencies
(particularly natural disasters such as the recent tsunami) that cannot be predicted.
However, it does not offer a good fit to other types of emergencies, such as the on-
going intermeshed series of conflicts occurring in Sudan since at least 1983, the
devastating conflict in the Democratic Republic of Congo, in responding to emergency
needs in Northern Uganda because of the conflict between the Ugandan government
and the Lords Resistance Army, for example. Such longer-term complex and
intractable emergencies require a longer-term approach.
1
This paper is based in the authors experience working as a humanitarian aid worker in Sudan (1997 –
2000) and Angola (2000 – 2002) together with concurrent and subsequent research and publications that
arose from that experience and a related consideration of Ireland‟s role in these humanitarian
emergencies. A list of relevant publications published by the author on this topic is attached in
Appendix 1.
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within this broadly abysmal context that result in sharp peaks in death rates in short
periods of time. Baseline „normal‟ conditions in these situations frequently meet
internationally recognized standards for „emergencies‟ (in terms of under five
mortality rates, maternal mortality rates, severe and global malnutrition rates etc),
justifying a longer term humanitarian commitment to providing some kind of safety
net to protect the most vulnerable.
Sudden onset crises within these contexts often result from local conditions – upsurges
in violence, natural disasters (drought, flood etc), and are frequently especially
difficult to respond to because of on-going conflict. It doesn‟t take much to push
populations already on the brink of survival over the edge. Humanitarian agencies
response to such sudden onset situations are frequently assisted by prior strategic
positioning – being in the right place at the right time also involves a long term
commitment to likely or recurring hot spots within these countries.
In short, the kinds of complex emergencies this paper is focusing on are typically man
made, and comprise some of the largest and most severe humanitarian emergencies in
the world today. Current examples include Sudan, Democratic Republic of Congo,
Burundi, Uganda, Somalia, Cote D‟Ivoire, Colombia and Afghanistan.
“Irish Bilateral Aid to Sudan – from modernization to conditionality: lessons learned and
future prospects” in Irish Studies in International Affairs, Vol. 15 (2004).
“Sanctions and Humanitarian Concerns: Ireland and Angola, 2001 – 02” in Irish Studies in
International Affairs, Vol. 14 (2003), pp 95 – 106.
„Becoming a “player”: Ireland and Aid Conditionality with reference to Sudan‟ European
Journal of Development Research, Vol. 13, No. 1, June 2001, pp. 68 – 84.
“Between a rock and a hard place: Irish Aid and Foreign Policy Response to crisis in Sudan
1998-99” in Irish Studies in International Affairs, Vol. 11 (2000), pp 217 – 231
These papers review Ireland‟s political and aid relationships with these two countries
during on-going humanitarian crises. They explore tensions between political and
humanitarian objectives and the resulting compromises that have been made, and
critique the effectiveness of Irish political involvement (limited as it has been) in these
two crises. Copies of these articles are included as a separate appendix for further
reference.
Lessons Learned
The following lessons can be learned from Irish government engagement with Sudan
and Angola.
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an intermittent commitment to providing funds for „forgotten emergencies‟,
patterns of disbursement of humanitarian aid largely depend on the priority of
the day, rather than on any longer term strategic commitment of resources to
particular countries (or regions) suffering from humanitarian emergencies.
2. In times when there is no high profile emergency to deal with, DCI funding to
humanitarian emergencies revolves around periodic reviews (three to four
times a year) of emergency funding requests that involve a cycle of
consultations with stakeholders. While DCI can and do indicate to NGO
partners in the run up to these funding decisions particular countries for which
they wish to fund activities, this tends more to reflect shorter-term needs of the
day than any longer term funding commitment to particular crises. Such an
approach is also somewhat dependent on the nature of NGO proposals received
in any particular funding round.
3. More broadly, DCI do not have an overall plan when it comes to managing the
overall mix of assistance it gives in such crisis situations. It‟s current „stove
pipe‟ approach to funding – where funding for different activities that might
complement each other (such as emergency relief, conflict resolution work,
human rights and other developmental activities) are managed in different
stand-alone funds without any overall co-ordination, results in a hit and miss
approach to DCI‟s overall portfolio impact in any given humanitarian
emergency. A recent evaluation of DCI‟s assistance to Afghanistan2 noted that
agencies there had accessed six different funding schemes and could have
accessed another four. Such diffusion of effort is both administratively
cumbersome and expensive, particularly given staffing shortages documented
in the same report within DCI.
4. Given the lack of any „real time‟ synthesis with respect to Irish assistance to
humanitarian emergencies (as opposed to ex-post evaluations such as the
Afghanistan evaluation noted above), it would appear that no one person or
team within DCI is responsible for planning, monitoring and evaluating all DCI
funded activities in any given humanitarian emergency. As a result, it is
doubtful that anyone is actively managing or monitoring the combined impact
of DCI‟s portfolio in such situations.
5. Consequently, little overall thought is being given to maximizing the scope and
impact of Irish assistance in ways that might over the long term assist in
addressing underlying causes of conflict, rather than simply responding to the
horrendous humanitarian consequences of these crises.
6. In countries where DCI does have a country level planning process because of
the presence of a bilateral aid programme, on-going planning activities appear
to focus on the bilateral aid programme alone, and not Ireland‟s broader aid
engagement with the country. This is particularly dangerous when bilateral aid
countries are suffering from on-going conflicts in particular regions. For
example, Ireland had a bilateral assistance program in Sudan from the mid
1970s until its closure in 1998 yet no attempt was made to co-ordinate that
programme with on-going Irish humanitarian assistance in other parts of the
country nor was there any serious analysis of the extent to which Ireland‟s
2
DCI, 2004, Public Expenditure Review of Support to Afghanistan 2000 to 2003, DCI, Dublin, p 36.
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intervention in Sudan may have contributed (in however small a way) to
developmental imbalances within the country by concentrating for many years
on one of the wealthier regions. The same could be said of Ireland‟s current
engagement with Uganda, where DCI‟s recent evaluation of the Uganda
Country Strategy3 indicates no consideration in the 2000 – 2003 strategy of the
on-going conflict driven humanitarian emergency in the north of the country.
7. DCI‟s long distance engagement with such crises, with management from
Dublin supplemented by occasional monitoring visits and evaluations, also
makes the nature of Ireland‟s engagements more fragile, particularly when
other concerns impinge. A case in point was the Irish government‟s attempts to
bring political pressure to bear on the parties to the Sudan war in 1998. 4 These
initiatives, while laudable, ultimately proved short lived because of broader
Irish concerns with respect to maintaining Irish / US relations in the wake of
the US bombing of a pharmaceutical plant in Khartoum in retaliation for the
East Africa embassy bombings. Ireland went from having an intensive
diplomatic engagement with Sudan over a period of five months (from April
2000 to August 2000), including visits to the country by the Irish Ambassador
based in Egypt, the Minister of State (Liz O Donnell) and the Minister for
Foreign Affairs (David Andrews), to a situation where Sudan was simply
dropped from the Irish government agenda in the wake of the US bombing.
A longer-term engagement by the Irish government with the humanitarian
crisis in Sudan would have provided the Irish government with a politically
more robust platform from which to work on a longer term basis.
3
DCI, 2003, Evaluation of the Uganda Country Strategy, 2000 – 2003, DCI, Dublin.
4
See: Between a rock and a hard place: Irish Aid and Foreign Policy Response to crisis in Sudan 1998-
99” in Irish Studies in International Affairs, Vol. 11 (2000), pp 217 – 231
5
It is to be noted that the sanctions themselves did not preclude the delivery of humanitarian assistance
that might have mitigated the atrocious humanitarian conditions in UNITA areas. Humanitarian
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Recommendations
1. DCI should develop a comprehensive strategic planning process for long term
complex emergencies
DCI should develop country strategic plans for long term complex humanitarian crises
that seek to maximize the impact of Irish assistance, and co-ordinate all Irish
government assistance being programmed in-country – including funds programmed
separately through bilateral aid, MAPS, block grant or other funding channels. Such a
strategic planning approach should involve key stakeholders – including NGO partners
that are receiving DCI support, UN agencies (WFP, UNICEF etc.) and others (state
institutions, church and local civil society groups) and should build on some of the
strengths of DCI‟s current humanitarian programme. However, implementing such a
planning approach should not mean that DCI‟s programmes come to look like
everyone else‟s. Ironically, because (unlike other donors), DCI does not currently have
a permanent presence in-country, and does not have a planning process for its
interventions in humanitarian emergencies, it is less susceptible to the kinds of donors
consensus‟s that can build up around where to fund and not fund and what kinds of
activities to fund. As a result, DCI is often a source of particularly valuable funding for
NGOs for that reason – allowing a measure of novelty and innovation – or allowing
response to less fashionable areas of the country, than would otherwise be possible.
This important niche should not be lost should a transition to a comprehensive
strategic planning process be made.
assistance was not delivered to UNITA areas principally because neither the Angolan government nor
UNITA wished to see such humanitarian assistance delivered.
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complementary conflict related programming in-country (for example Human Rights
and Democratization funding). Such a presence should follow the pattern of DCI‟s
Development Co-operation Offices by being quasi-diplomatic, but differ in staffing
mix, because of the nature of these crises. These offices will require at least one
political officer from the Department of Foreign Affairs, supported by staff with
technical competence in public health, nutrition, emergency relief, water / sanitation,
protection work, democratization, human rights, security analysis and any other
sectoral activities added to the country portfolio. Given cost considerations, some of
these competencies could be hired on a short term basis as required, with a relatively
small core staff presence.
4. DCI should use the planning process and its permanent presence to improve
the overall impact of DCI’s assistance in complex emergencies
Maintaining a permanent presence will allow DCI to better monitor and evaluate the
performance of implementing partners – both UN agencies and NGOs. The recent DCI
evaluation report on Afghanistan notes the lack of transparency inherent in current
reporting mechanisms of UN agencies6 and the inability of DCI to identify agencies
that are performing less well without a permanent presence.7 Having a permanent DCI
presence on the ground would address these issues.
6
DCI, 2004, Public Expenditure Review of Support to Afghanistan 2000 to 2003, DCI, Dublin, p37.
7
DCI, 2004, Public Expenditure Review of Support to Afghanistan 2000 to 2003, DCI, Dublin, p 26.
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List of Appendices
Appendix 1
“Irish Bilateral Aid to Sudan – from modernization to conditionality: lessons learned and
future prospects” in Irish Studies in International Affairs, Vol. 15 (2004).
Appendix 2
“Sanctions and Humanitarian Concerns: Ireland and Angola, 2001 – 02” in Irish Studies in
International Affairs, Vol. 14 (2003), pp 95 – 106.
Appendix 3
„Becoming a “player”: Ireland and Aid Conditionality with reference to Sudan‟ European
Journal of Development Research, Vol. 13, No. 1, June 2001, pp. 68 – 84.
Appendix 4
“Between a rock and a hard place: Irish Aid and Foreign Policy Response to crisis in Sudan
1998-99” in Irish Studies in International Affairs, Vol. 11 (2000), pp 217 – 231
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