UNHCR Handbook for Emergencies - UNHCR eCentre

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CONTENTS Paragraph Page Introduction 1 68 Implementing Arrangements 2-12 68-69 Degree of Operational Responsibility of UNHCR The Operational Role of the Government The Operational Role of UN Agencies Non-Governmental Organizations Implementing Procedures 13-31 69-71 The Emergency Letter of Instruction (ELOI) Implementing Agreements Administrative Expenditure by Implementing Partners Direct UNHCR Expenditure Procurement Contributions In Kind Monitoring, Reporting and Evaluation 32-39 71-72 Special Considerations 40-50 72-73 Payment for the Purchase or Rent of Refugee-Occupied Land Payment to Refugees Provision of Services to the Local Population Corruption Political and Religious Activity Key References Annexes 73 Annex 1: Sample Letter of Mutual Intent to Conclude an Agreement 74-75 Annex 2: Procurement by a UNHCR Field Office 76-78 Annex 3: Example of a Standard Emergency Situation Report (SITREP) 79-80 Annex 4: Format for Reporting on Population in Emergency Situation Reports 81 Implementing Arrangements 8 67
68 Introduction 1. Appropriate arrangements to implement an emergency operation will be fundamental to its success. UNHCR has a unique statutory responsibility for the provision of international protection. However, there is no such unique statutory responsibility for the provision and distribution of material assistance to refugees, which might be carried out by other organizations – governmental, UN agencies, NGOs, as well as directly by UNHCR. There are a number of factors which will influence the implementing arrangements for assistance operations. This chapter outlines implementing arrangements and procedures in emergencies including monitoring, reporting and evaluation. UNHCR guidelines for standard procedures must be referred to for more detail. Implementing Arrangements 2. Depending on the scale and needs of the emergency, a number of different implementing arrangements may be needed in the various sectors. One organization might have operational responsibility for health care, and another for logistics. Even within a sector, operational responsibility may have to be split up. Different operational partners might have responsibility for health care in different refugee sites or communities. In UNHCR terminology, an operating partner is an organization or agency that works in partnership with UNHCR to protect and assist refugees, and an implementing partner is an operational partner that signs an implementing agreement with UNHCR. 3. Whenever possible UNHCR seeks to implement assistance indirectly through an implementing partner rather than directly. The origin of this policy is found in the Statute of UNHCR. Article 1 requires the High Commissioner to seek “permanent solutions for the problem of refugees by assisting Governments and, subject to the approval of the Governments concerned, private organizations...“. In accordance with Article 10, the High Commissioner “shall administer any funds, public or private, which he/she receives for assistance to refugees, and shall distribute them among the private and, as appropriate, public agencies which he/she deems best qualified to administer such assistance”. Degree of Operational Responsibility of UNHCR 4. Although UNHCR normally seeks to implement indirectly through an implementing partner, there are circumstances in which it may be necessary and/or clearly in the interests of refugees for UNHCR to assume greater operational responsibility. UNHCR’s degree of direct operational responsibility will vary for each emergency situation, and also with time as the operation evolves. 5. Factors influencing the degree of operational responsibility undertaken by UNHCR, other organizations and the government include the following: i. The government’s capacity to manage the refugee emergency, because of the scale, nature, location of the emergency, and ability of existing government structures to respond; ii. The existence and capacity of other organizations in the country, and in the sectors where assistance is most needed; iii. The stage of the emergency. At the start of an emergency, the government itself frequently has full operational responsibility. For example, a new influx is often first assisted by the local district and provincial authorities. On the other hand, in other circumstances, it is often at the start of an emergency where UNHCR has the greatest operational responsibility because there may be no suitable operational partner immediately available within the country. 6. Where UNHCR does assume a high degree of operational responsibility, swift action is needed to ensure that the necessary personnel and expertise are available, by obtaining the rapid deployment of sufficient UNHCR staff (see chapter 20 on administration and emergency staffing). At the same time, steps should be taken to identify and mobilize other organizations to assume responsibilities in the various sectors as soon as possible. The Operational Role of the Government 7. Whatever the implementing arrangements, overall responsibility remains with the host government, assisted by UNHCR. The government’s concurrence must, in accordance with Article 1 of the Statute, be sought on the proposed implementing arrangements. 8. The government may not have the capacity to be the primary operational organi-
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United Nations High Commissioner fo
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Chapters may be located quickly by
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VI Introduction
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VIII
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X UNHCR’s Mission Statement
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2 1 Aim and Principles of Response
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4 Definition and Aim 1. The majorit
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6 18. By definition, the needs of a
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8 tal degradation. Environmental pr
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10 2 Protection
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12 Introduction UNHCR’s Mandate 1
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14 23. In countries that are partie
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Page 29 and 30: 18 Field staff at the site, anxious
Page 31 and 32: 20 ii. To refrain from violence to
Page 33 and 34: 22 as a result of armed conflict, i
Page 35 and 36: 24 Annex 1 - International Instrume
Page 37 and 38: 26 3 Emergency Management
Page 39 and 40: 28 Introduction 1. There is no sing
Page 41 and 42: 30 Capacity and Resources 5. Emerge
Page 43 and 44: 32 28. At the global level, UNHCR m
Page 45 and 46: 34 4 Contingency Planning
Page 47 and 48: 36 Introduction 1. Contingency plan
Page 49 and 50: 38 is not unusual for the various p
Page 51 and 52: 40 5 Initial Assessment, Immediate
Page 53 and 54: 42 Introduction 1. Emergency assist
Page 55 and 56: 44 for details of how to access UNH
Page 57 and 58: 46 Annex 1 - Checklist for Initial
Page 59 and 60: 48 6 Operations Planning
Page 61 and 62: 50 Introduction 1. An emergency res
Page 63 and 64: 52 Figure 1 - an example of a Gap I
Page 65 and 66: 54 Annex 2 - Gap Identification Cha
Page 67 and 68: 56 7 Coordination and Site Level Or
Page 69 and 70: 58 Coordination Introduction 1. Coo
Page 71 and 72: 60 i. Resident Coordinator The Resi
Page 73 and 74: 62 38. The system of refugee repres
Page 75 and 76: 64 Annex 2 - Tips on running a meet
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Page 81 and 82: 70 nated the manager of the operati
Page 83 and 84: 72 Sufficient information must be a
Page 85 and 86: 74 Annex 1 - Sample Letter of Mutua
Page 87 and 88: 76 Annex 2 - Procurement by a UNHCR
Page 89 and 90: 78 will be composed of at least thr
Page 91 and 92: 80 SITREP (number) COUNTRY COVERING
Page 93 and 94: 82 9 External Relations
Page 95 and 96: 84 Relations with Government and Di
Page 97 and 98: 86 21. Field offices should monitor
Page 99 and 100: 88 ❏ DO remember that any program
Page 101 and 102: 90 stood as being entirely intended
Page 103 and 104: 92 Annex 1 MEMBER STATES OF THE EXE
Page 105 and 106: 94 10 Community Services and Educat
Page 107 and 108: 96 Situation The trauma of becoming
Page 109 and 110: 98 8. Community services programmes
Page 111 and 112: 100 Site planning and construction:
Page 113 and 114: 102 ❏ Promote the social role of
Page 115 and 116: 104 families may be provided with a
Page 117 and 118: 106 actly what degree of protection
Page 119 and 120: 108 cational materials of the type
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Page 123 and 124: 112 PHASE 3. BUILDING UP COMMUNITY
Page 125 and 126: 114 Annex 2 Sample Unaccompanied Mi
Page 127 and 128: 116 Annex 3 - List of materials for
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118 11 Population Estimation and Re
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120 Situation Refugee emergencies a
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122 Administrative Records 12. Loca
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124 ii. The refugees accept the pro
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126 Annex 1 - Format for reporting
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128 Annex 3 - Control Sheet Feuille
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130 Annex 5 - Codes for UNHCR Regis
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132 12 Site Selection, Planning and
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134 Situation Suitable and well-sel
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136 Camps 11. This type of settleme
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138 27. Refugee settlements should
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140 40. Natural and existing featur
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142 example, where there are severe
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144 camp. In particular, this will
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146 can be kept out of this space.
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148 13 Commodity Distribution
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150 Situation Emergency situations
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152 Components of Distribution Syst
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154 14 Health
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156 Situation It is well known from
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158 registration for more informati
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160 Monitoring and Surveillance: Th
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162 ◆ The emotional stress of dis
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164 Malaria 41. Malaria can also po
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166 Reproductive Health 7 45. Repro
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168 than outsiders in communicating
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170 collect and consolidate health
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172 place to jointly identify prior
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174 Key References An Inter-agency
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176 2. Mortality 2.1 Mortality rate
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178 3.2 Out-Patient Department (OPD
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180 6. Referral system 6.1 Total nu
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182 7.3 Tuberculosis (every three m
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184 15 Food and Nutrition
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186 Situation In emergencies, food
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188 ◆ In most refugee emergencies
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190 management of the natural resou
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192 General Feeding Programme ◆ A
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194 Figure 2 - Response to food and
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196 malnourished children. However
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198 Figure 4 - Admission and discha
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200 ing programme will depend on th
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202 Annex 1 - Basic Facts About Foo
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204 Annex 1 (cont.) - Characteristi
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206 Annex 3 - Main Nutritional Defi
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208 Annex 5 - Reporting Form: Thera
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210 16 Water
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212 Situation Water is essential to
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214 Figure 1a - Needs and Resources
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216 8. Available sources must be pr
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218 26. The most serious threat to
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220 iii. Implementation arrangement
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222 61. Without good groundwater re
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224 filtration, chemical disinfecti
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226 Storage ◆ All refugee sites m
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228 17 Environmental Sanitation
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230 Situation Overcrowding, a harsh
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232 Table 1: - Number and Types of
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234 27. Arrangements must be made t
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236 35. Figure 1 illustrates some c
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238 Ventilated Improved Double-Pit
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240 etable gardens and fruit trees
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242 tive manner to sustain “soft
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244 Annex 1 II. Public Places C. Ex
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246 Annex 2: - Environmental Sanita
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248 18 Supplies and Transport
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250 Situation Refugee emergencies a
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252 v. Comprehensive planning: Have
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254 of continuing such local purcha
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256 37. Where a suitable rail netwo
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258 iv. Size and weight: packing un
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260 70. When selecting a warehouse
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262 Annex 1: - Standard specificati
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264 Annex 2 - Planning Vehicle Need
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266 3. Fuel and Maintenance Facilit
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268 5. Warehouse documents Whatever
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270 Annex 4 Distribution: 2 copies
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272 19 Voluntary Repatriation
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274 Situation Voluntary repatriatio
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276 during and after their return,
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278 or another to return to their c
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280 untary repatriation operation i
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282 59. Customs formalities: Custom
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284
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286 Linked Cases: Family/Group No:
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288 (i) Spontaneous and self-organi
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290 20 Administration, Staffing and
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292 Introduction 1. The purpose of
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294 communities may come forward to
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296 already represented in that cou
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298 51. Whatever the pressures of t
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300 each trip. The daily log should
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302 Annex 1 - CHECK-LIST FOR THE EM
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304 - Maintenance logs - Construct
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306 ❏ 37. Request Emergency Allot
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308 325 Logistics (procurement, tra
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310 21 Communications
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312 Introduction 1. Good communicat
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314 on the roof of the building or
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316 Annex 1 - Common Communications
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318 22 Coping with Stress
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320 Introduction 1. Stress is a fea
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322 preparation not only includes u
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324 23 Staff Safety
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326 Introduction ◆ The primary re
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328 formation on all possible means
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330 Depending on the circumstances
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332 iv. Ballistic blankets fitted i
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334 24 Working with the Military
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336 Introduction ◆ In humanitaria
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338 personnel, including creating t
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340 Catalogue of Emergency Response
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342 human resources Emergency Prepa
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344 Senior Emergency Administrator
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346 Norwegian and Danish Refugee Co
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348 Swedish Rescue Services Agency
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350 Staff and Office Accommodation
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352 Office Kits The Office Kit comp
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354 Vehicles A stock of 20 vehicles
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356 Emergency Operations Room Based
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358 Kitchen Sets 30,000 Kitchen Set
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360 Emergency Capacities of Non Gov
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362 Refugee Registration Package Th
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364 UNHCR Emergency Fund The purpos
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366 Workshop on Emergency Managemen
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368 Toolbox
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370 Table 1 - Key Emergency Indicat
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372 Table 4 - Screening of New Arri
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374 Table 7 - The Size of Things Co
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376 Table 10 - Conversion Factors T
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378 Memoranda
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380 FRAMEWORK for OPERATIONAL COOPE
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382 e) jointly invite donors, Unite
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384 20. UNHCR and UNDP shall: a) co
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386 MEMORANDUM OF UNDERSTANDING bet
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388 (ii) Operational Activities 18.
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390 including cold chain equipment,
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392 WFP/UNHCR COOPERATION MEMORANDU
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394 Both agencies will agree on the
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396 jointly agreed by UNHCR and WFP
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398 8.8 Joint headquarters-level me
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400 Glossary
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402 Index
Page 415 and 416:
404 Deployment 15, 32, 172, 337, 33
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406 Office - Installation 313, 314
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408
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