Emergency

Preparedness & Response

Handbook
AcknowIedgements
PubIIshed by CathoIIc ReIIeI ServIces, November 2002.
Program QuaIIty and Support Department
CathoIIc ReIIeI ServIces
209 W. Fayette St.
8aItImore, MD 21201-3443
U.S.A.
These guIdeIInes are a product oI the CRS Emergency Response Team (ERT), a unIt oI the
Program QuaIIty and Support Department (PQSD). AnnemarIe ReIIIy Is the prImary author.
]enny Aker contrIbuted to the sectIon on conceptuaI Irameworks and Iood securIty. Much oI
the InIormatIon reIated to dIsaster preventIon, mItIgatIon and preparedness Is borrowed
dIrectIy or adapted Irom the CRS MItIgatIon Handbook (KrIsten HIcks, 1996). The
InIormatIon regardIng contIngency pIannIng Is adapted Irom the UnIted NatIons'
ContIngency PIannIng: A PractIcaI CuIde Ior FIeId StaII (CompIex EmergencIes TraInIng
nItIatIve-CET, 1996).
PQSD and ERT members contrIbuted to the content and revIewed aII draIts. DraIts were aIso
peer revIewed by CRS staII representIng both headquarters and IIeId oIIIces. A specIaI
thanks to aII who contrIbuted to thIs handbook.
Acronyms
8PRM DOS 8ureau oI PopuIatIon, ReIugees and MIgratIon
C CarItas nternatIonaIIs
CR Country RepresentatIve
CRED Centre Ior Research on the EpIdemIoIogy oI DIsasters
DFD UK Department Ior nternatIonaI DeveIopment
DOS US Department oI State
ECHO European CommunIty HumanItarIan OIIIce
EMT ExecutIve Management Team
ERT Emergency Response Team
ERWC Emergency Response WorkIng Croup
FFP]ER USAD Food Ior Peace]Emergency Response
HR Human Resources
HQ Headquarters-CRS]8aItImore
CRC]FRC nternatIonaI CommIttee oI the Red Cross]Red Crescent]nternatIonaI
FederatIon oI the Red Cross]Red Crescent SocIetIes
DP nternaIIy DIspIaced Person
FAD nternatIonaI Fund Ior AgrIcuIture DeveIopment
NCO Non-governmentaI OrganIzatIon
OCHA UN OIIIce oI CoordInatIon Ior HumanItarIan AIIaIrs
OFDA USAD OIIIce oI ForeIgn DIsaster AssIstance
OSD Overseas Support Department
OT USAD OIIIce oI TransItIon nItIatIves
RD RegIonaI DIrector
SHARP CRS StrategIc HumanItarIan ActIon PIan
SFP SuppIementary FeedIng Program
TAP TransItIon ActIvItIes Program
TDY Temporary Duty
TFP TherapeutIc FeedIng Program
USAD UnIted States Agency Ior nternatIonaI DeveIopment
USDA UnIted States Department oI AgrIcuIture
UNHCR UnIted NatIons HIgh CommIssIoner Ior ReIugees
WFP WorId Food Programme
WHO WorId HeaIth OrganIzatIon
TabIe oI Contents
ntroductIon
SectIon 1: FoundatIons oI CRS Emergency Preparedness & Response
1.1 The CRS Emergency Preparedness & Response MIssIon and VIsIon
1.2 Emergency Preparedness & Response: Key DeIInItIons and Concepts
1.2.1 What Is an EmergencyZ
1.2.2 DIsaster TypoIogIes
1.2.3 Emergency Phases
1.2.4 UnderstandIng DIsaster PreventIon, MItIgatIon and Preparedness
1.2.4.1 DIsaster PreventIon
1.2.4.2 DIsaster MItIgatIon
1.2.4.3 DIsaster Preparedness
1.2.5 Cross-cuttIng Themes In Emergency Preparedness & Response
1.2.5.1 The RIghts-based Approach to HumanItarIan ActIon
1.2.5.2 The CRS ]ustIce Lens and PeacebuIIdIng In EmergencIes
1.2.5.3 Do No Harm
1.2.5.4 CoordInatIon
1.2.5.5 CapacIty 8uIIdIng and PartnershIp
1.2.5.6 TransItIon ProgrammIng
1.3 PrIncIpIe-Ied ProgrammIng
SectIon 2: Emergency Preparedness & Response Program QuaIIty
2.1 CeneraI 8ackground on CRS Emergency Preparedness & Response
2.1.1 CRS Emergency Preparedness & Response Program QuaIIty Statements and
TechnIcaI Core CompetencIes
2.2 ExceIIence In Emergency ProgrammIng
2.2.1 8uIIdIng 8Iocks Ior CRS Emergency Program QuaIIty
2.2.2 The 8Ig PIcture: The ReIIeI-DeveIopment LInk
2.2.3 ConceptuaI Frameworks Ior EmergencIes
2.2.4 The Project CycIe
2.2.5 Project DesIgn
2.2.5.1 Assessment
2.2.5.2 CoaIs, ObjectIves, ndIcators
2.2.5.3 TargetIng and SeIectIon CrIterIa
2.2.5.4 mpIementatIon
2.2.5.5 MonItorIng and EvaIuatIon
SectIon 3: CRS Emergency Projects: FundIng, RevIew, Headquarters Support
3.1 FundIng Sources
3.1.1 CRS PrIvate Resources
3.1.2 CarItas nternatIonaIIs FederatIon
3.1.3 USAD
3.1.4 US Department oI State
3.1.5 US Embassy Ambassador's Fund
3.1.6 USDA
3.1.7 ECHO
3.1.8 UnIted NatIons
3.1.9 Other Donors
3.2 Project RevIew and FundIng Procedure
3.3 HQ Emergency Response WorkIng Croup
Annexes
A. CRS CuIdeIInes on HumanItarIan AId In ConIIIct SItuatIons
8. CRC]FRC]NCO Code oI Conduct
C. Sphere Project HumanItarIan Charter
D. nternatIonaI Law nstruments and Cround RuIes Ior HumanItarIan AId In ConIIIct
SItuatIons
E. CRS Emergency Preparedness & Response Program QuaIIty Statements
F. CRS Emergency ProposaI Format
C. TechnIcaI RevIew Format
H. Cap dentIIIcatIon Chart
. CarItas nternatIonaIIs (C) CuIdIng VaIues, PrIncIpIes, WorkIng Structures and
MechanIsms Ior Response to Major EmergencIes
]. CRS SItuatIon ReportIng Formats
K. Emergency Response Team OrganIzatIonaI Chart
L. Emergency Response CheckIIst Ior Managers
M. WebsItes Ior HumanItarIan ReIIeI News, OrganIzatIons and Donors
8oxes
8ox 1.1 CRS MIssIon Statement
8ox 1.2 CRS VIsIon Statement
8ox 1.3 CRS EPR VIsIon and MIssIon Statements
8ox 1.4 Crude MortaIIty Rate
8ox 1.5 MItIgatIon
8ox 1.6 What Is the dIIIerence between a ReIugee and an DPZ
8ox 1.7 SupportIng PeacebuIIdIng In EmergencIes
8ox 1.8 UnderIyIng Causes oI ConIIIct: the EconomIc Factor
8ox 1.9 Emergency Preparedness and Response TraInIng Programs
8ox 1.10 AddItIonaI Resources
8ox 2.1 What Is FamIneZ
8ox 2.2 Sphere Handbook AnaIysIs Standards
8ox 2.3 Food AId Standard and Key ndIcators
8ox 2.4 CrIterIa Ior TargetIng DIIIerent Types oI VuInerabIIIty
8ox 2.5 AddItIonaI Resources
8ox 3.1 NCRA
TabIes
TabIe 1.1 Key ndIcators oI an Emergency SItuatIon
TabIe 1.2 CharacterIzatIons oI DIsaster Events
TabIe 1.3 An Approach to PeacebuIIdIng In VIoIent ConIIIcts
TabIe 1.4 AnaIytIcaI TooI Ior a PrIncIpIed Approach to Emergency ProgrammIng
FIgures
FIgure 1.1 MItIgatIon Framework Ior RapId-Onset DIsasters
FIgure 1.2 MItIgatIon Framework Ior SIow-Onset DIsasters
FIgure 2.1 Emergency Response OperatIonaI Framework
FIgure 2.2 8uIIdIng 8Iocks Ior CRS Emergency Program QuaIIty
FIgure 2.3 The RIsk ReductIon Lens
FIgure 2.4 DFD SustaInabIe LIveIIhoods Framework
FIgure 2.5 The Project CycIe
FIgure 2.6 The Emergency Project CycIe
FIgure 3.1 Emergency ProposaI RevIew, RecommendatIon and FundIng Procedure Ior CRS
PrIvate Funds
CIossary
8IbIIography
FoundatIons oI CRS Emergency
Preparedness & Response 1
n thIs sectIon you wIII IInd InIormatIon on the IoIIowIng topIcs.
1.1 The CRS Emergency Preparedness and Response MIssIon and
VIsIon
RevIews the agency mIssIon and vIsIon statements and the CRS emergency
preparedness and response mIssIon and vIsIon statements.
1.2 Emergency Preparedness & Response: Key DeIInItIons and
Concepts
RevIews concepts and deIInItIons oI emergency, naturaI and human-made
dIsasters, compIex emergencIes, dIsaster typoIogIes, etc., and dIscusses the
IInkages between dIsaster preventIon, dIsaster mItIgatIon, dIsaster
preparedness, emergency response, and deveIopment.
1.3 PrIncIpIe-Ied ProgrammIng
A brIeI IntroductIon to the prIncIpIes oI emergency work wIth an emphasIs on
core humanItarIan prIncIpIes.
The CRS MIssIon and VIsIon 1.1
The CRS agency mIssIon statement artIcuIates the motIvatIon behInd CRS' work and
IdentIIIes the broad ways In whIch CRS IIves out Its mIssIon. The statement IncIudes very
cIear reIerences to CRS' work In emergency sItuatIons.
n addItIon to the agency's mIssIon statement, CRS deveIoped a vIsIon statement In 2001
that speaks eIoquentIy to the agency's vIsIon oI the worId and provIdes Iurther support to
CathoIIc ReIIeI ServIces
MIssIon Statement
CathoIIc ReIIeI ServIces was Iounded In 1943 by the CathoIIc 8Ishops oI the UnIted States to assIst
the poor and dIsadvantaged outsIde the country. t Is admInIstered by a 8oard oI 8Ishops seIected
by the EpIscopaI ConIerence oI the UnIted States, and Is staIIed by men and women commItted to
the CathoIIc Church's apostoIate oI heIpIng those In need. t maIntaIns strIct standards oI eIIIcIency
and accountabIIIty.
The IundamentaI motIvatIng Iorce In aII actIvItIes oI CRS Is the CospeI oI ]esus ChrIst as It pertaIns
to the aIIevIatIon oI human suIIerIng, the deveIopment oI peopIe and the IosterIng oI charIty and
justIce In the worId. The poIIcIes and programs oI the agency reIIect and express the teachIng oI the
CathoIIc Church. At the same tIme, CathoIIc ReIIeI ServIces assIsts persons on the basIs oI need, not
creed, race or natIonaIIty.
CathoIIc ReIIeI ServIces gIves actIve wItness to the mandate oI ]esus ChrIst to respond to human
needs In the IoIIowIng ways:
by respondIng to vIctIms oI naturaI and man-made dIsasters;
by provIdIng assIstance to the poor and to aIIevIate theIr ImmedIate needs;
by supportIng seII-heIp programs whIch InvoIve peopIe and communItIes In theIr ow
deveIopment;
by heIpIng those It serves to restore and preserve theIr dIgnIty and to reaIIze theIr potentIaI;
by coIIaboratIng wIth reIIgIous and non-sectarIan persons and groups oI good wIII In
programs and projects whIch contrIbute to a more equItabIe socIety;
by heIpIng to educate the peopIe oI the UnIted States to IuIIIII theIr moraI responsIbIIItIes In
aIIevIatIng human suIIerIng, removIng Its causes, and promotIng socIaI justIce.
8ox 1.1
our thInkIng about emergencIes. The vIsIon statement caIIs on CRS staII, partners and
supporters around the worId to strIve to transIorm the worId In whIch we IIve through
soIIdarIty.
CRS Emergency Preparedness & Response VIsIon and MIssIon
n December 1999, at the Emergency Preparedness & Response Program QuaIIty SummIt In
NanyukI, Kenya, a VIsIon and MIssIon Statement Ior CRS emergency preparedness and
response was deveIoped that reIIects the agency's commItment to justIce and to an agency-
wIde approach to emergency programmIng.
CathoIIc ReIIeI ServIces
VIsIon Statement
SoIIdarIty wIII transIorm the worId to:
CherIsh and uphoId the sacredness and dIgnIty oI every person;
CommIt to and practIce peace, justIce and reconcIIIatIon; and,
CeIebrate and protect the IntegrIty oI aII creatIon.
8ox 1.2
CRS Emergency Preparedness and Response VIsIon
CRS promotes socIaI justIce, soIIdarIty and compassIon through tImeIy emergency preparedness and
response that addresses the needs oI the most vuInerabIe.
CRS Emergency Preparedness & Response MIssIon
CRS IuIIIIIs Its mIssIon to Ioster hope Ior popuIatIons In dIstress when the entIre agency:
Works together as stakehoIders.
Shares IeadershIp guIded by cIear systems and procedures.
8uIIds new and strengthens exIstIng networks oI partnershIps and reIatIonshIps.
Promotes ownershIp oI emergency response by strengthenIng IocaI capacItIes.
AchIeves quaIIty standards In programmIng.
Accesses human, materIaI and IInancIaI resources approprIate to each emergency.
8ox 1.3
An emergency Is an extraordInary sItuatIon, present or ImmInent,
In whIch there are serIous and ImmedIate threats
to human IIIe, dIgnIty and IIveIIhoods.
Emergency Preparedness and Response:
Key DeIInItIons and Concepts 1.2
1.2.1 What Is an EmergencyZ
An emergency accordIng to the Sphere Project: HumanItarIan Charter and MInImum
Standards In DIsaster Response can be deIIned as "a sItuatIon where peopIe's normaI means
oI support Ior IIIe wIth dIgnIty have IaIIed as a resuIt oI naturaI or human-made
catastrophe." As promuIgated by the UnIted NatIons, a dIsaster Is "a serIous dIsruptIon oI
the IunctIonIng oI a socIety, causIng wIdespread human, materIaI or envIronmentaI Iosses
whIch exceed the abIIIty oI the aIIected socIety to cope usIng onIy Its own resources." For
the purposes oI thIs manuaI, the IoIIowIng deIInItIon oI emergency, whIch encompasses
both rapId and sIow-onset dIsasters, wIII be used:
As IIIustrated In the above deIInItIon, the word dIsaster Is most oIten used to reIer to a
catastrophIc event or serIes oI events. The MerrIam Webster dIctIonary deIInes dIsaster as
"a sudden caIamItous event brIngIng great damage, Ioss, or destructIon." We wouId add to
thIs that a dIsaster can aIso be sIow-onset such as wIth droughts. The word emergency
most oIten reIers to the resuIts oI such an event or events. The MerrIam Webster dIctIonary
deIInes emergency as "an unIoreseen combInatIon oI cIrcumstances or the resuItIng state
that caIIs Ior ImmedIate actIon [or] an urgent need Ior assIstance or reIIeI." Even though
these words are oIten used InterchangeabIy, CRS utIIIzes the emergency deIInItIon In the
box above and understands dIsasters as a catastrophIc event or serIes oI events.
Another common term reIerred to In reIIeI work Is humanItarIan actIon, whIch descrIbes the
actIon that Is taken to provIde emergency assIstance and protectIon to dIsaster-aIIected
popuIatIons. AssIstance and protectIon are the two pIIIars oI humanItarIan actIon.
SometImes specIIIc humanItarIan actIons appear to cIearIy IaII under one pIIIar or another
(e.g., protectIon oI unaccompanIed chIIdren; assIstance In the Iorm oI provIdIng Iood aId to
Iood Insecure popuIatIons). t Is more common, however, that aII humanItarIan actIon
contrIbutes In some way both to protectIng and assIstIng dIsaster-aIIected popuIatIons Irom
rIsks to theIr IIves and IIveIIhoods.
t Is not aIways cIear what constItutes an emergency sItuatIon. Not every earthquake or
hurrIcane resuIts In damage to human IIves and IIveIIhoods to such an extent that an
emergency Is decIared. n Iact, the same weather phenomenon can occur In two dIIIerent
pIaces and have very dIssImIIar Impacts on the IIves and IIveIIhoods oI those aIIected. ThIs
can be attrIbuted to a wIde varIety oI
Iactors Irom the popuIatIon densIty oI
the aIIected area to the economIc
condItIon oI the aIIected popuIatIon.
DIsasters don't dIscrImInate between
rIch and poor, yet rIcher househoIds,
wIth Insurance coverage and weII-
constructed homes, Ior exampIe, have
more resIIIent IIveIIhood systems and
can cope wIth the eIIects oI a dIsaster
better than poorer househoIds.
So, the questIon then arIses oI how CRS
determInes when a dIsaster event
requIres humanItarIan actIon. A generaI
deIInItIon oI a dIsaster, deveIoped by the
Center Ior Research on the EpIdemIoIogy
oI DIsasters (CRED, UnIversIty oI
LouvaIn, 8eIgIum), uses the IoIIowIng
crIterIa.
10 or more peopIe reported kIIIed
a caII Ior InternatIonaI assIstance
100 or more peopIe reported aIIected
decIaratIon oI a state oI emergency
UnIortunateIy, thIs kInd oI academIc
deIInItIon doesn't take Into account the varIous poIItIcaI dynamIcs that may, Ior exampIe,
Iead a government not to decIare a state oI emergency due to poIItIcaI concerns or,
converseIy, to request InternatIonaI assIstance when It actuaIIy has the capacIty to respond.
Another way oI IdentIIyIng an emergency sItuatIon, and one that Is cIoser to what Is most
useIuI Ior CRS, Is based on the appIIcatIon oI key IndIcators such as the crude mortaIIty rate
descrIbed In 8ox 1.4.
Measurement oI crude mortaIIty rates Is a key IndIcator In major emergencIes InvoIvIng
events such as epIdemIc outbreaks or IamIne. However, emergency sItuatIons do not aIways
deveIop dramatIcaIIy wIth Iarge scaIe deaths. For exampIe, an earthquake may not resuIt In
any deaths, but may destroy a Iarge percentage oI houses IeavIng the aIIected popuIatIon
Crude MortaIIty Rate
One way oI deIInIng an emergency Is to
consIder changes In mortaIIty and morbIdIty.
Excess mortaIIty exIsts when the crude
mortaIIty rate (CMR) Is hIgher than the
prevaIIIng mortaIIty IeveI oI the surroundIng
popuIatIon In an emergency settIng. n
deveIopIng countrIes a CMR hIgher than 2
deaths per 10,000 persons per day has been
the tradItIonaI deIInItIon oI excess mortaIIty.
The prevaIIIng mortaIIty rate In deveIoped
countrIes may vary Irom that oI deveIopIng
countrIes and thIs needs to be consIdered
durIng the InItIaI assessment. CaIcuIatIng the
CMR may not be appIIcabIe or reIevant to a
sudden-Impact dIsaster unIess there Is a
Iong-standIng or sIgnIIIcant popuIatIon
dIspIacement.
The Sphere Project: HumanItarIan Charter and
MInImum Standards In DIsaster Response
Handbook
8ox 1.4
homeIess and vuInerabIe. Some emergency sItuatIons evoIve over tIme and It Is harder to
determIne when emergency measures shouId be Iaunched II no baseIIne data exIsts to
compare to ongoIng monItorIng. For thIs reason, It Is crItIcaI to be aware oI a number oI key
IndIcators to be monItored that wIII provIde cIues about the deveIopment oI an emergency
and trIgger poInts to aIert aId agencIes on when to Intervene.
AdaptIng a tabIe used by UNHCR by IncIudIng the mInImum standards Iound In the Sphere
Handbook, TabIe 1.1 provIdes emergency IndIcators that warrant ImmedIate actIon. The
Sphere Handbook makes a sIgnIIIcant contrIbutIon to humanItarIan reIIeI work by provIdIng
standards oI response and benchmarks to measure the meetIng oI those standards. The
Sphere Handbook Is reIerred to throughout thIs document and Is avaIIabIe In every CRS
country program oIIIce and on the Internet (www.sphereproject.org) Ior Iurther reIerence.
ndIcator Emergency LeveIs
MortaIIty Rate = or >1 per 10,000 per day
NutrItIonaI Status oI ChIIdren >10Z Iess than 80Z oI medIan weIght Ior heIght
Food <2,100 caIorIes per person per day
Water QuantIty <15 IIters per person per day Ior consumptIon, cookIng, washIng
Water QuaIIty >25Z oI peopIe wIth dIarrhea
SIte Space <30 square meters per person
SanItatIon >20 peopIe per toIIet
SheIter (personaI space) <3.5 square meters per person
An Important consIderatIon In deveIopIng key IndIcators Ior emergencIes specIIIc to a
partIcuIar pIace Is the context. The above IndIcators were deveIoped prImarIIy wIth reIugee
or dIspIaced popuIatIons In camp settIngs In mInd. Many peopIe around the worId IIve In
condItIons oI poverty and destItutIon In whIch even some oI the mInImum standards and
key IndIcators oI emergency response may seem IIke eIusIve dreams. These are condItIons
oI chronIc and desperate poverty but are not necessarIIy cIassIIIed as "emergencIes". What
dIstInguIshes an emergency sItuatIon Irom one In whIch the popuIatIon IIves In sub-
standard condItIons Is the occurrence oI a catastrophIc event or events. SItuatIons In whIch
peopIe IIve In sub-standard condItIons requIre a response on the part oI reIIeI and
deveIopment organIzatIons but In most cases where a dIsaster event has not occurred, the
response shouId be the Ionger term work oI deveIopment rather than emergency response.
ThIs Is dIscussed In more detaII In the IoIIowIng sectIon.
RegardIess oI how an emergency Is deIIned, CRS must make decIsIons on whether or not to
Intervene based on CRS crIterIa (see Annex A Ior crIterIa Ior a CRS response In conIIIct
sItuatIons). These IncIude key Iactors such as:
TabIe 1.1 Key ndIcators oI an Emergency SItuatIon
Each year Irom 1991 to 2000, an average oI
211 mIIIIon peopIe were kIIIed or aIIected
by naturaI dIsasters - seven tImes greater
than the IIgure Ior those kIIIed or aIIected
by conIIIct. CIobaIIy durIng the Iast decade,
naturaI dIsasters aIone kIIIed an average oI
nearIy 1,300 peopIe every week. NatIons oI
Iow or medIum human deveIopment
provIded 98 per cent oI the vIctIms.
FRC WorId DIsasters Report, 2001
1. The resuIts oI thorough assessments and anaIyses that determIne the type and scaIe oI
the dIsaster and whether outsIde assIstance Is needed to save IIves and]or support
IIveIIhoods.
2. An anaIysIs oI the vaIue-added oI a CRS and]or partner InterventIon.
3. The organIzatIonaI and technIcaI capacIty oI the CRS country program and IocaI partners
to Intervene.
4. SecurIty and saIety oI CRS and partner staII, program beneIIcIarIes and CRS and partner
property (e.g., appIIcatIon oI CRS SecurIty and StaII SaIety CuIdeIInes; Do No Harm
anaIysIs).
5. FundIng avaIIabIIIty.
For CRS, deIInIng an emergency Is based IIrst and Ioremost on the resuIts oI assessments.
DependIng on the scaIe and urgency oI a dIsaster, assessments can range Irom rapId
sItuatIonaI assessments to comprehensIve sectoraI assessments. RegardIess oI how quIckIy
an assessment Is conducted, there are prIncIpIes that must be appIIed to ensure that the
InIormatIon coIIected Is accurate and useIuI. Assessments are brIeIIy dIscussed In SectIon 2
oI thIs handbook. AddItIonaI guIdance on assessments wIII be avaIIabIe In the IorthcomIng
CRS Emergency Assessment ManuaI.
1.2.2 DIsaster TypoIogIes
DIsasters can be dIvIded Into two broad groupIngs: naturaI dIsasters and human-made
dIsasters. These two broad categorIes can then be sub-dIvIded Into severaI categorIes based
on the speed, scaIe and duratIon oI the event(s). TabIe 1.2 provIdes a non-exhaustIve IIst oI
these dIIIerent types oI dIsasters. WhIIe varIatIons on the deIInItIons oI naturaI and human-
made dIsasters exIst, Ior the purpose oI thIs handbook, the deIInItIons that IoIIow wIII be
used.
NaturaI dIsasters usuaIIy reIer to phenomena
such as earthquakes, typhoons, voIcanIc
eruptIons, and drought. WhIIe some naturaI
dIsasters are catastrophIc In character and
couId hardIy be prevented, many
envIronmentaIIsts wIII argue that the
negatIve resuIts oI naturaI dIsasters on
peopIe are oIten a resuIt oI human actIvIty.
For exampIe, houses washed away durIng
IIoods are IIkeIy to be those that are buIIt on
precarIous deIorested hIIIsIdes by poor
IamIIIes wIth Iew aIternatIves. Many naturaI
dIsaster phenomena are cycIIcaI In nature
and can be predIcted wIth some degree oI accuracy; thus emphasIzIng the Importance oI
preventIon, preparedness and mItIgatIon In program pIannIng.
Human-made dIsasters can cover a wIde array oI events caused by human actIvIty. Human-
made dIsasters can be caused by human errors such as a nucIear power statIon accIdent or
the coIIapse oI a buIIdIng due to IauIty engIneerIng. Most reIevant to the work oI
InternatIonaI humanItarIan agencIes are those human-made dIsasters resuItIng In vIoIent
conIIIct or war. A term utIIIzed oIten to descrIbe the nature oI post-CoId War vIoIent
conIIIct Is CompIex Emergency.
CompIex emergencIes reIer to InternaI poIItIcaI crIses and]or armed conIIIct, compIIcated by
an array oI poIItIcaI, socIaI and economIc Iactors. (UnIted NatIons CET ContIngency PIannIng
TraInIng, 1996). They typIcaIIy IncIude a breakdown oI IegItImate InstItutIons and
governance, wIdespread suIIerIng and Iarge-scaIe popuIatIon dIspIacements. CompIex
emergencIes tend to be very dynamIc, dIstInguIshed by rapId changes that are dIIIIcuIt to
predIct, thus raIsIng compIex Issues regardIng the tImIng, nature and scaIe oI the
humanItarIan actIon needed.
SIow-Onset RapId -Onset CycIIcaI]ChronIc
NaturaI DIsaster Drought Earthquake
FIoodIng
CycIone
VoIcanIc EruptIon
HurrIcane
Snow Storm
LandsIIde
AvaIanche
Dust Storm
Drought
FIoodIng
CycIone
HurrIcane
Human-made
DIsaster
Drought
VIoIent ConIIIct
AccIdents
8IoIogIcaI hazards
VIoIent ConIIIct
VIoIent ConIIIct
The categorIes descrIbed above can take on dIIIerent characterIstIcs dependIng on the
tImIng and scope oI the dIsaster event(s). For exampIe, there are acute or rapId-onset
dIsasters versus sIow-onset or progressIve dIsasters, cycIIcaI dIsasters and chronIc
emergencIes. Some categorIes overIap as In the exampIe oI cycIones whIch are both rapId
onset and cycIIcaI (I.e., somewhat predIctabIe). The typoIogy oI a dIsaster has ImpIIcatIons
regardIng what can be done In terms oI preventIon, mItIgatIon and preparedness, not just
the response.
TabIe 1.2 CharacterIzatIons oI DIsaster Events
DeveIopment Programs:
LInkages wIth DIsaster PreventIon,
Preparedness and MItIgatIon
RIsk and dIsaster management must
become part oI the deveIopment process.
The opportunItIes to mItIgate Iuture
dIsasters wIII never be grasped unIess
governments anaIyse rIsks and deveIop
dIsaster management pIans. nternatIonaI
agencIes need to Iorge true partnershIps
wIth IocaI non-governmentaI
organIzatIons (NCOs) and buIId theIr
capacItIes to respond swIItIy and
eIIectIveIy to theIr own dIsasters.
FRC WorId DIsasters Report, 2001
1.2.3 Emergency Phases
n addItIon to the varIous types oI dIsasters, there are dIIIerent phases oI the emergency
response to them. For exampIe, In most rapId onset dIsasters the very IIrst stage Is search
and rescue. Search and rescue operatIons usuaIIy InvoIve specIaIIzed unIts In deveIoped
countrIes. n deveIopIng countrIes, there are tImes when specIaIIzed unIts are avaIIabIe
IocaIIy or sent In by other countrIes. n many cases, however, It Is the IocaI popuIatIon that
acts ImmedIateIy to search Ior vIctIms and brIng them to saIety. ThIs stage oI an emergency
response Is ImmedIate and usuaIIy Iasts just three to Iour days aIter a dIsaster event.
The IoIIow-up stage to search and rescue consIsts oI humanItarIan actIon or emergency
reIIeI. ThIs stage Is unpredIctabIe In terms oI Its duratIon. A country wIth means may need
onIy short-term emergency reIIeI Ior Its dIsaster-aIIected popuIatIon beIore movIng quIckIy
to rehabIIItatIon and reconstructIon. There couId aIso exIst varIatIons wIthIn a dIsaster-
aIIected popuIatIon wIth economIcaIIy weII-oII groups recoverIng more quIckIy Irom a
dIsaster event than those Iess weII-oII. Some countrIes may be very hard hIt by a dIsaster
event and requIre emergency reIIeI over a Iong perIod oI tIme. RegardIess oI the scope oI
an emergency and the IInancIaI weII-beIng oI the aIIected popuIatIon, CRS strIves to provIde
emergency reIIeI to meet ImmedIate needs In a way that aIso avoIds creatIng dependency
and supports seII-suIIIcIency. ThIs Is achIeved prImarIIy by ensurIng partIcIpatIon oI the
dIsaster-aIIected popuIatIon In program desIgn and buIIdIng on IocaI capacItIes.
As an emergency sItuatIon stabIIIzes (or appears to move towards peaceIuI resoIutIon In the
case oI vIoIent conIIIct), the aIIected communItIes and humanItarIan actors move Into the
transItIon stage oI rehabIIItatIon and reconstructIon, and, II aII goes weII, to deveIopment.
WhIIe It Is Important to understand these varIous stages oI the reIIeI-deveIopment cycIe, It Is
equaIIy Important to understand that It Is rareIy a case oI cIear cut, deIIned stages (see
FIgure 2.6, the Emergency Project CycIe Ior
addItIonaI InIormatIon). The varIous stages
oIten overIap or shIIt back and Iorth over tIme.
1.2.4 UnderstandIng DIsaster
PreventIon, MItIgatIon and Preparedness
DIsasters and theIr subsequent emergency
sItuatIons present myrIad characterIstIcs that
deIy easy IabeIIng or categorIzatIon. CIvII
conIIIct can be compounded by a naturaI
dIsaster thus IeadIng to an ever more
compIIcated set oI cIrcumstances and
humanItarIan needs. WhIIe every emergency
sItuatIon Is dIIIerent, they oIten share some sImIIarItIes In terms oI the basIc conceptuaI
understandIng oI emergency phases and the IInkages between preventIon, mItIgatIon,
preparedness, reIIeI, and deveIopment actIvItIes. The work oI reIIeI and deveIopment
organIzatIons such as CRS cannot just be responsIve to dIsasters. We must be pro-actIve to
IIrst and Ioremost prevent dIsasters whenever possIbIe. SecondIy, eIIorts must be made to
mItIgate the eIIects oI dIsasters. ThIrdIy, preparedness Ior dIsasters Is necessary to ensure
the most eIIectIve response when a dIsaster does occur. FInaIIy, rIsk management must be
IuIIy Integrated Into deveIopment programmIng.
RIsk and DIsaster mpact
Why Is It that the same type and IntensIty oI naturaI dIsaster, such as a hurrIcane or a
drought, can have such varyIng Impacts In dIIIerent pIacesZ The answer Is cIearIy that
dIIIerent socIetIes have deveIoped varyIng ways oI copIng wIth dIsasters and that the degree
to whIch a socIety Is vuInerabIe wIII IargeIy dIctate how the dIsaster aIIects the popuIatIon.
Even wIthIn a gIven popuIatIon, not everyone wIII suIIer equaIIy. Those who have soIId asset
bases, opportunItIes and Insurance mechanIsms wIII oIten recover theIr Iosses IaIrIy quIckIy
whIIe the poor and margInaIIzed wIII suIIer dIsproportIonate Iosses and take much Ionger to
recover.
DIsasters occur In every country oI the worId. Thus, aII socIetIes are at rIsk to some degree.
What determInes the IeveI oI rIsk In a partIcuIar area Is a combInatIon oI dIsaster proneness
and the socIety's or IndIvIduaI's vuInerabIIItIes.
RSK = DSASTER PRONENESS + VULNERA8LTY
DIsaster proneness Is an estImatIon oI what types oI dIsasters are IIkeIy to strIke a gIven
area, how IrequentIy they can be expected to occur, and theIr Iorecasted IntensIty. Some
countrIes can be prone to a wIde range oI dIsasters (e.g., typhoons, earthquakes, IIoods,
droughts) whIIe others wIII be pIagued prImarIIy by one or two consIstent probIems.
VuInerabIIIty, accordIng to Anderson and Woodrow (1991), "Is the concept that best expIaIns
who suIIers In a dIsaster." Across the gIobe, certaIn cIasses oI peopIe are more vuInerabIe
than others wIth gender, caste, ethnIcIty, reIIgIon, dIsabIIIty, and age beIng the most
common dIscrImInatIng Iactors. VuInerabIIIty Is a IunctIon oI many poverty-reIated Iactors
IncIudIng:
a Iack oI assets and savIngs,
IImIted access to empIoyment opportunItIes credIt and other resources,
Iow educatIon and skIII IeveI,
poor heaIth and nutrItIonaI status,
substandard sheIter, and
MItIgatIon
Though the term mItIgatIon Is
IrequentIy used these days In the
context oI drought management or
IamIne preventIon, It appIIes to a wIde
range oI dIsasters, both naturaI and
man-made as weII as quIck-onset and
progressIve. 8y ImpIementIng
strategIes that cause the Impact oI
dIsasters to be Iess severe and boIster
peopIes' abIIIty to cope wIth such
crIses, mItIgatIon uItImateIy seeks to:
prevent human suIIerIng, death,
and damage to assets and
property,
create a more stabIe envIronment
Ior sustaIned deveIopment and an
escape Irom poverty, and
reduce or curtaII the need Ior
emergency response and costIy
reIIeI campaIgns, thus IreeIng up
vaIuabIe human and IInancIaI
resources Ior Iong-term
Investments In deveIopment.
CRS MItIgatIon Handbook, 1996
8ox 1.5
the occupatIon oI margInaI, degraded and even dangerous Iands.
n addItIon, vuInerabIIIty Is aIIected by InternatIonaI and domestIc governmentaI economIc
and socIaI poIIcIes, the degree to whIch pubIIc servIces exIst and can be accessed,
InIrastructure and market deveIopment, and the presence oI cIvII unrest or war.
SadIy, the concept oI vuInerabIIIty as It appIIes to dIsaster rIsk Is a doubIe-edged sword; the
more vuInerabIe peopIe are, the more IIkeIy that theIr property, IIveIIhoods and IIves wIII be
In danger oI Injury, damage and destructIon, and the Iess abIe they are to recover Irom such
Iosses. ConverseIy, popuIatIons whose vuInerabIIItIes are Iow wIII rareIy experIence
"dIsaster" because a cataIyst wIII not cause excessIve Ioss oI IIIe and property as It wouId In
other cIrcumstances (Anderson and Woodrow, 1991).
To expound on thIs poInt, the Impact oI any
dIsaster on human IIIe and property, II IeIt
unchecked by governments, organIzatIons and
communItIes, wIII depend on the tImIng, severIty
and duratIon oI the dIsaster combIned wIth the
popuIatIon's vuInerabIIIty.
DSASTER MPACT = DSASTER +
VULNERA8LTY
For the most part, the tImIng, severIty and
duratIon oI a naturaI dIsaster such as an
earthquake or typhoon cannot be InIIuenced by
human actIon. Thus, the work oI reIIeI and
deveIopment organIzatIons Iocuses on
dImInIshIng the second part oI thIs equatIon,
vuInerabIIIty.
For CRS, dIsaster preventIon, mItIgatIon and
preparedness actIvItIes shouId be IoIded Into
exIstIng agency pIannIng processes such as the
AnnuaI Program PIan (APP) and the StrategIc
Program PIan (SPP) processes. t Is essentIaI that
emergency preventIon, mItIgatIon and
preparedness be consIdered durIng these
pIannIng processes II they are to become an
IntegraI part oI a country program's actIvItIes.
1.2.4.1 DIsaster PreventIon
The preventIon oI dIsasters wouId reduce untoId human suIIerIng and damage to IIveIIhoods
and property. UnIortunateIy, dIsaster preventIon, especIaIIy In deveIopIng countrIes, Is oIten
overIooked or Ignored. ThIs can be due to a varIety oI reasons such as the Iack oI resources
or poIItIcaI wIII to Invest In preventIon actIvItIes. RegardIess, It Is oI utmost Importance Ior
reIIeI and deveIopment agencIes such as CRS to take dIsaster preventIon actIvItIes Into
consIderatIon In ongoIng deveIopment programs. WhIIe poverty reductIon strategIes may
reduce vuInerabIIIty to some dIsasters, others that are beyond human controI wIII occur.
Thus dIsaster preventIon strategIes must be boIstered by pre-cataIyst dIsaster mItIgatIon as
descrIbed beIow.
1.2.4.2 DIsaster MItIgatIon
MItIgatIon can be deIIned as strategIes or InterventIons ImpIemented beIore a dIsaster
strIkes or In response to the onset oI a dIsaster event to mInImIze Its Impact or to prevent
uItImate catastrophe.
Some peopIe say mItIgatIon Is onIy a Iancy guIse Ior what wouId otherwIse be categorIzed as
deveIopment or reIIeI. WhIIe It Is true that mItIgatIon actIvItIes can be deveIopmentaI or
reIIeI-orIented In nature, mItIgatIon Iocuses on reducIng both short- and Iong-term
vuInerabIIItIes oI popuIatIons as they reIate to the partIcuIar types oI dIsaster cataIysts whIch
occur In that area. UnIIke ongoIng deveIopment work, dIsaster mItIgatIon InherentIy
ImpIIes that a deIInabIe dIsaster Is expected to occur or does occur rather than the mere
presence oI chronIc Iood InsecurIty and poverty. And though some mItIgatIon Is responsIve
In nature, as Is the case wIth emergency reIIeI, the dIIIerence between the two Is that post-
cataIyst mItIgatIon Is an earIy response whIch seeks to prevent Iurther deterIoratIon and
dIsaster by deaIIng wIth the most ImmedIate causes oI InsecurIty. WhIIe deveIopment
tackIes the root causes oI vuInerabIIIty and reIIeI deaIs wIth the acute symptoms, mItIgatIon
straddIes the two and Is both proactIve and reactIve In nature.
DIsaster mItIgatIon shouId occur aIong-sIde ongoIng deveIopment work and dIsaster
preparedness, the Iatter beIng necessary In aII socIetIes, deveIoped and deveIopIng aIIke.
RapId-Onset DIsaster MItIgatIon
As stated earIIer, most rapId-onset naturaI dIsasters, such as hurrIcanes and earthquakes,
cannot be averted by human actIon. Much can be done, however, to mInImIze theIr eIIects
through preemptIve mItIgatIon actIvItIes whIch take pIace beIore the onset oI a cataIyst.
Such actIvItIes shouId be buIIt Into an organIzatIon's repertoIre oI ongoIng deveIopment
actIvItIes. WhIIe It Is true that aII deveIopment-orIented outcomes (e.g., Improved
educatIon, Income generatIng opportunItIes, Increased access to eIIectIve heaIth care, etc.)
wIII uItImateIy heIp peopIe to thrIve and cope, mItIgatIon Iocuses specIIIcaIIy on a
communIty's partIcuIar IeveI oI rIsk, based on IocaI dIsaster proneness and vuInerabIIItIes.
There are generaIIy two categorIes oI pre-cataIyst mItIgatIon actIvItIes: non-structuraI and
structuraI. ExampIes oI non-structuraI strategIes IncIude the estabIIshment oI zonIng and
buIIdIng codes, eIIorts to reduce popuIatIon densItIes, changes In agrIcuIturaI practIces,
educatIon and pubIIc awareness campaIgns, and the deveIopment oI meteoroIogIcaI
IorecastIng and earIy warnIng systems. The Iast Is oI partIcuIar Importance because earIy
warnIng that Is IInked to an eIIIcIent and wIdespread communIcatIons system aIIows peopIe
to protect theIr IIves and property through evacuatIon, the removaI oI assets to saIer
ground, and the securIng oI homes and other structures. Many non-structuraI mItIgatIon
measures requIre eIther Iarge substantIaI outIays oI Iunds and]or government poIIcy
decIsIons. NonetheIess, NCOs can stIII make Important contrIbutIons In terms oI non-
structuraI mItIgatIon actIvItIes, partIcuIarIy In the reaIm oI capacIty-buIIdIng at the IocaI IeveI
(e.g., evacuatIon process traInIng or agrIcuIturaI extensIon to demonstrate and teach new
pIantIng technIques).
NCOs tend to Iocus on the ImpIementatIon oI structuraI mItIgatIon projects wIthIn
vuInerabIe communItIes, generaIIy as Iood or cash-Ior-work schemes. Homes can be buIIt
wIth IocaIIy avaIIabIe materIaIs to be more resIstant to hIgh wInds and tremors, agroIorestry
and educatIon In naturaI resource management can heIp reverse ecoIogIcaI damage and
prevent mudsIIdes and erosIon Irom occurrIng, and naturaI or artIIIcIaI barrIers can be
created to IorestaII IIoodIng or protect peopIe and assets Irom wInds.
I properIy ImpIemented, pre-cataIyst mItIgatIon actIvItIes wIII mInImIze the damagIng
eIIects oI Iuture dIsasters and decrease the need Ior both emergency reIIeI and
rehabIIItatIon. The mItIgatIon-orIented Iocus Is thus more on preventIon than reIIeI. ThIs
does not mean, however, that emergency response wIII no Ionger be necessary. On the
contrary, even In the weaIthIest oI countrIes, dIsaster preparedness Is essentIaI.
OrganIzatIons workIng In deveIopIng countrIes prone to rapId-onset dIsasters wouId be wIse
to ImpIement a three-pronged approach that IncIudes ongoIng deveIopment work, pre-
cataIyst mItIgatIon actIvItIes and eIIectIve dIsaster preparatIon. FIgure 1.1 outIInes
mItIgatIon In the rapId-onset dIsaster context.
SIow-Onset DIsaster MItIgatIon
LIke rapId-onset dIsasters, sIow-onset dIsasters aIso necessItate pre-cataIyst mItIgatIon
actIvItIes that are ImpIemented beIore the onset oI a cataIyst. EmphasIs at thIs stage shouId
be pIaced on reducIng IocaI vuInerabIIItIes to commonIy-occurrIng hazards. 8ut wIth sIow-
onset dIsasters, deveIopment and reIIeI organIzatIons have a Iurther roIe to pIay. n
ONSET OF CATALYST
(e.g., monsoon, hurrIcane, earthquake)
EMERCENCY RELEF*
as determIned Irom an assessment and anaIysIs
RSK ASSESSMENT
that anaIyzes IocaI dIsaster proneness and vuInerabIIIty
PRE-CATALYST MTCATON ACTVTES
Purpose: To respond dIrectIy to the IIndIngs oI the rIsk
assessment and work to reduce vuInerabIIItIes and mInImIze
the Impact oI commonIy-occurrIng cataIysts.
Nature: On-goIng deveIopment actIvItIes.
ExampIes: ConstructIon oI earthquake or hurrIcane-resIstant
homes; tIdaI basIn work to prevent rIce IIeIds Irom beIng
washed away; reIorestatIon to prevent mudsIIdes.
DSASTER STRKES
but the Impact Is Iessened due to mItIgatIon actIvItIes
There wIII be Iess Injury, death, popuIatIon dIspIacement, and Ioss oI
home, property and other economIc assets due to pre-cataIyst actIvItIes.
REHA8LTATON and RECONSTRUCTON ACTVTES*
desIgned to heIp peopIe rebuIId theIr homes, buIId back theIr asset base and reestabIIsh socIaI networks
RETURN TO TOP OF CHART
* Note: The more eIIectIve mItIgatIon actIvItIes are, the Iess emergency reIIeI and rehabIIItatIon are requIred.
ONCONC DEVELOPMENT
ACTVTES TO COM8AT
THE UNDERLYNC
CAUSES OF POVERTY
ExampIes: nterventIons In
educatIon, heaIth and
nutrItIon, and Income
generatIon.
DSASTER PREPAREDNESS
ACTVTES
ExampIes: DeveIopment oI
earIy warnIng systems,
maIntenance oI Iood and
medIcIne stocks,
preparatIon oI emergency
sheIters, and deveIopment
oI emergency response
procedures and
communIcatIon systems.
FIgure 1.1 MItIgatIon Framework Ior RapId-onset
addItIon to boIsterIng peopIes' Iong-term abIIIty to cope wIth crIses, there Is a vItaI need Ior
approprIate mItIgatIon actIvItIes ImmedIateIy aIter the InItIaI cataIyst has emerged. Post-
cataIyst, pre-catastrophe mItIgatIon actIvItIes prevent the InItIaI dIsaster (e.g., drought, crop
InIestatIon or hyper-InIIatIon) Irom becomIng a catastrophe and curtaII a contInued
downward spIraIIng oI suIIerIng, the break-down oI IamIIIes and communItIes, destItutIon,
death, and dependence on outsIde assIstance.
The Process oI FamIne
The process oI IamIne deserves specIaI attentIon when dIscussIng sIow-onset dIsasters
because even In areas where IamIne Is not ever an outcome, the IamIne Iramework InIorms
us how peopIe react to a wIde range oI cataIysts that dIrectIy aIIect theIr IeveI oI Iood
securIty. FamIne as an outcome Is preventabIe, and the breadth and severIty oI damage,
suIIerIng, destItutIon, and death caused by the IamIne process are IntoIerabIe.
Rather than a IInIte event, IamIne Is a process that can resuIt Irom a number oI dIIIerent
cataIysts such as drought, crop InIestatIon, desertIIIcatIon, and]or war. ChronIc Iood
InsecurIty Increases untII It Is acute, househoId resources become depIeted and, II IeIt
unchecked, a IamIne ensues. The goaI shouId not be to respond to the Iate-stage IndIcators
oI IamIne - severe maInutrItIon, starvatIon deaths and mass mIgratIon - but to prevent
IamIne Irom ever becomIng the IInaI outcome oI the process. The emphasIs thus shIIts
Irom a tradItIonaI strategy oI savIng IIves through emergency reIIeI to one oI preservIng
IIveIIhoods by heIpIng peopIe to protect theIr productIve potentIaI and maIntaIn IamIIy and
socIaI networks (8uchanan-SmIth and DavIes, 1995; Dreze, 1988).
From the wIde array oI IamIne-reIated IIterature oI the 1980s and 1990s, we have come to
understand that Iood InsecurIty and IamIne are Iess oI a Iood suppIy Issue than one oI
economIc and socIaI reIatIonshIps. Sen's entItIement theory shIIted the Iocus Irom natIonaI
Iood productIon and avaIIabIIIty to the abIIIty oI IndIvIduaIs and househoIds to gaIn access
to goods that provIde Ior adequate consumptIon (Sen, 1981). AttentIon stIII needs to be
paId to the Iood suppIy baIance sheet to ensure that there Is suIIIcIent Iood In countrIes and
regIons to meet consumptIon and productIon needs. 8ut, more ImportantIy, househoIds
must have the means oI accessIng that Iood. They do so by usIng theIr Iabor, theIr
productIve assets, theIr stores or savIngs, and theIr socIaI cIaIms (e.g., IamIIy tIes,
repayment Ior past Iavors, assIstance Irom the state, etc.) to estabIIsh entItIements to Iood
(Sen, 1981).
HousehoIds Iaced wIth rIsks to theIr Iood entItIements wIII pIan to mInImIze theIr Impact
through a range oI copIng strategIes, many oI whIch IncIude IIquIdatIng the assets that they
have buIIt up durIng Iess stressIuI tImes. Each socIety, and Indeed each IndIvIduaI, wIII have
Its own copIng mechanIsms accordIng to the partIcuIar IIveIIhoods, resources and tradItIons.
However, there are many commonaIItIes In the ways that peopIe Irom dIIIerent parts oI the
deveIopIng worId manage theIr resources and mInImIze rIsk. ExperIence has demonstrated
that peopIe IacIng Increased IeveIs oI Iood InsecurIty wIII generaIIy decrease theIr current
consumptIon In order to protect assets Ior Iuture vIabIIIty (de WaaI, 1989). As peopIes'
desperatIon Increases, they resort to more extreme and Iess reversIbIe measures (Corbett,
1988; CutIer, 1985).
SIow-Onset MItIgatIon In the Food SecurIty Context
There Is a very IIne IIne between chronIc and acute Iood InsecurIty, partIcuIarIy sInce peopIe
In many parts oI the deveIopIng worId reguIarIy experIence "Iean" seasons, some whIch can
Iast Ior months on end. PeopIe wIII cope wIth these cycIIcaI Iood shortages In much the
same way they deaI wIth the onset oI a sIow-onset dIsaster such as drought or crop IaIIure.
When the Iood shortage Is oI a partIcuIarIy proIonged or Intense nature, and]or when peopIe
have had theIr copIng mechanIsms weakened by a prIor straIn, the IamIne process
acceIerates and seasonaI InsecurIty Is transIormed Into an emergency sItuatIon.
SeasonaI and acute Iood InsecurIty manIIest themseIves In one or a combInatIon oI the
IoIIowIng ways:
InsuIIIcIent Iood avaIIabIIIty due to (a) a decIIne or IaIIure oI IocaI productIon or (b) the
Iack oI other Iood, produced domestIcaIIy or Imported, In IocaI markets;
InsuIIIcIent purchasIng or barterIng power to access Iood; and]or
the InabIIIty to maxImIze bIoIogIcaI utIIIzatIon oI Iood consumed due to dIsease burden
and other Iactors.
n most sIow-onset dIsasters, aII three components oI Iood securIty, avaIIabIIIty, access and
utIIIzatIon, wIII be compromIsed. MItIgatIon actIvItIes shouId seek to boIster those varIabIes
that are most dIrectIy aIIected by the dIsaster. For exampIe, In cases where IocaI productIon
has IaIIed, organIzatIons shouId heIp peopIe become productIve once agaIn through
actIvItIes such as the deveIopment oI Iow-cost water suppIy systems or the estabIIshment oI
dryIand gardens. n the meantIme, II there Is Indeed a shortage oI Iood at the IocaI IeveI,
commodItIes shouId be made avaIIabIe through domestIc, regIonaI or InternatIonaI Imports.
n sItuatIons where Iood Is avaIIabIe but a Iack oI purchasIng power prevents househoIds
Irom accessIng It, InterventIons that eIther heIp to Increase Incomes or decrease market
prIces are approprIate. Food-Ior-work and other Income-generatIon schemes, Ior exampIe,
wIII heIp househoIds obtaIn Iood and other basIc needs whIIe preventIng the IIquIdatIon oI
savIngs and productIve assets. DestockIng, IIvestock prIce guarantee schemes and the
tImeIy reIease oI graIn onto the market can heIp maIntaIn terms-oI-trade that wIII be
IavorabIe to pastoraIIsts and other deIIcIt producers. DurIng perIods oI drought and cIvII
conIIIct, when househoIds generaIIy decrease theIr caIorIc and nutrIent Intake, there Is IIkeIy
to be a correspondIng decIIne In access to cIean water, thus IncreasIng the IIkeIIhood oI
Increases In the spread, IntensIty and duratIon oI dIseases. Young chIIdren and mothers are
at partIcuIar rIsk to Increases In morbIdIty (8eIbase and Morgan, 1994). MItIgatIon actIvItIes
shouId attempt to decrease dIsease rIsk and boIster utIIIzatIon through the earIy provIsIon
oI suppIementary Iood Ior vuInerabIe groups (e.g., chIIdren under two, pregnant and
IactatIng women, the eIderIy, etc.), vaccInatIon campaIgns and the ImpIementatIon oI water
and sanItatIon InterventIons.
t Is Important to note that many mItIgatIon actIvItIes desIgned Ior sIow-onset dIsasters are
approprIate Ior deaIIng wIth seasonaI Iood InsecurIty as weII. n areas where there are
annuaI Iood deIIcIts, organIzatIons shouId buIId both pre- and post-cataIyst mItIgatIon
actIvItIes Into theIr ongoIng work. Where seasonaI Iood shortages are due at Ieast In part to
poor IocaI storage capacIty, communItIes and househoIds shouId be aIded In estabIIshIng
storage IacIIItIes. Food]cash-Ior-work schemes can be ImpIemented durIng the Iean
seasons and other programs, such as suppIementary IeedIng, mother-chIId heaIth, and
schooI IeedIng, can be augmented (both In terms oI coverage and sIze oI beneIIt) to
mInImIze the Impact oI Increased InsecurIty. 8y boIsterIng peopIes' abIIIty to cope wIth
seasonaI Iood InsecurIty, organIzatIons can heIp IndIvIduaIs and househoIds decrease theIr
Iong-term vuInerabIIItIes and be better prepared to deaI wIth unexpected, perIodIc dIsasters
when they occur.
FIgure 1.2 depIcts how mItIgatIon actIvItIes, both pre- and post-cataIyst, shouId be used to
mInImIze the eIIects oI and prevent the augmentatIon oI sIow-onset dIsasters.
ONSET OF CATALYST
(e.g., drought, crop dIsease, etc.)
CATASTROPHE PREVENTED
Human and physIcaI Iosses are mInImIzed
RSK ASSESSMENT
that anaIyzes IocaI dIsaster proneness and vuInerabIIIty
PRE-CATALYST MTCATON ACTVTES
Purpose: To respond dIrectIy to the IIndIngs oI the rIsk
assessment and work to reduce vuInerabIIItIes and mInImIze
the Impact oI commonIy-occurrIng cataIysts.
Nature: On-goIng deveIopment actIvItIes.
ExampIes: Water harvestIng projects; constructIon oI
househoId or communIty storage IacIIItIes; IntroductIon oI
drought-resIstant crops and IarmIng methods; peace and
reconcIIIatIon eIIorts.
REHA8LTATON and RECONSTRUCTON ACTVTES*
I necessary to repIace assets that were Iost earIy In the crIsIs
RETURN TO TOP OF CHART
* Note: The more eIIectIve mItIgatIon actIvItIes are, the Iess emergency rehabIIItatIon wIII be requIred.
ONCONC DEVELOPMENT
ACTVTES TO COM8AT
THE UNDERLYNC
CAUSES OF POVERTY
ExampIes: nterventIons In
educatIon, heaIth and
nutrItIon, and Income
generatIon.
DSASTER PREPAREDNESS
ACTVTES
ExampIes: DeveIopment oI a
muItI-Iaceted earIy warnIng
system whIch Is IInked to
pIanned response
procedures and
mechanIsms; maIntenance
oI regIonaI, natIonaI or IocaI
graIn stocks.
POST-CATALYST, PRE-CATASTROPHE MTCATON ACTVTES
Purpose: To react In a tImeIy IashIon to a cataIyst or symptoms oI stress to prevent a contInued downward spIraI oI suIIerIng and
destItutIon and to protect peopIes' IIveIIhoods whIIe heIpIng to meet ImmedIate consumptIon needs.
Nature: QuIck-reactIon, targeted actIvItIes aImed at boIsterIng peopIes' copIng strategIes. Can InvoIve the ImpIementatIon oI new
projects or the expansIon oI ongoIng projects.
ExampIes: DrIIIIng oI borehoIes In drought-aIIected areas; earIy dIstrIbutIon oI Iood ratIons; IIvestock preservatIon actIvItIes; market
InterventIons to stabIIIze prIces and prevent hoardIng; cash]Iood-Ior-work or dIrect Income transIers to boIster Incomes, prevent
decapItaIIzatIon oI productIve assets, and prevent dIstress mIgratIon.
FIgure 1.2 MItIgatIon Framework Ior SIow-onset
SInce the 1950s, costs assocIated wIth naturaI
dIsasters have rocketed 14-IoId. MeanwhIIe
the worId's rIchest natIons donated just 0.39
per cent oI theIr 1999 gross natIonaI products
(CNPs) In annuaI overseas aId - haII the
amount the UnIted NatIons (UN) consIders
necessary. OI thIs IIgure, a IractIon Is
Invested In preventIng dIsasters. Yet research
suggests that US$ 40 bIIIIon spent In dIsaster
mItIgatIon wouId have reduced gIobaI
economIc Iosses In the 1990s by US$ 280
bIIIIon.
FRC WorId DIsasters Report, 2001
UnderstandIng the ProbIem at Hand
AII deveIopment and reIIeI work requIres a certaIn IeveI oI knowIedge oI IocaI IIveIIhood
systems; mItIgatIon actIvItIes, partIcuIarIy Ior sIow-onset dIsasters, cannot be ImpIemented
successIuIIy wIthout the IoIIowIng three categorIes oI InIormatIon.
1. RIsk assessment: To understand the IeveI oI rIsk experIenced by any gIven popuIatIon,
anaIyses oI dIsaster proneness and vuInerabIIIty are necessary (AD8, 1991). DIsaster
proneness hIghIIghts the types oI commonIy-occurrIng cataIysts, the probabIIIty that
they wIII occur, typIcaI tImIng (II cycIIcaI), and expected IntensIty oI the dIsaster.
VuInerabIIIty assessment shouId take Into account the degree to whIch peopIe In a partIcuIar
area are abIe to protect themseIves Irom suIIerIng, Injury and death and prevent damage or
Ioss oI theIr property and assets.
VuInerabIIIty assessment must be
conducted at a dIsaggregated IeveI In order
to aIIow Ior targetIng oI the most Iood
Insecure househoIds. Webb, et aI. (1992)
Iound In EthIopIa that "whIIe aII househoIds
In the drought-aIIected regIons studIed
were aIIected, the Impact oI IamIne varIed
by househoId accordIng to Income and
asset base. These IIndIngs suggest that
even where aImost everyone Is extremeIy
poor, the depth oI poverty Is Important In
determInIng the Impact oI IamIne."
Another way oI IookIng at vuInerabIIIty
anaIysIs Ior seasonaI Iood shortages and
sIow-onset dIsasters Is to thInk oI when and why peopIe are most Iood Insecure by
assessIng a wIde range oI Iood securIty IndIcators. These couId IncIude, Ior exampIe,
nutrItIon and heaIth IIgures (IndIcators oI utIIIzatIon); earnIngs and sources oI Income,
educatIon and skIII IeveIs, Insurance mechanIsms, and asset accumuIatIon (IndIcators oI
access); and agrIcuIturaI productIvIty and dIversIty, naturaI resource management,
marketIng and dIstrIbutIon systems (IndIcators oI avaIIabIIIty).
2. TImeIy, accurate and decentraIIzed earIy warnIng systems: The topIc oI earIy warnIng
systems has generated much Interest and actIvIty over the past decade. Though some rapId-
onset dIsasters can be detected beIore they aIIect human popuIatIons (e.g., hurrIcanes,
monsoons, cycIones, heavy raIns) and are Important Ior dIsaster preparatIon and evacuatIon,
earIy warnIng systems are most pertInent to the mItIgatIon oI sIow-onset dIsasters.
HIstorIcaIIy, predIctIon oI IncreasIng Iood InsecurIty has been hampered by an over
concentratIon on domestIc Iood stocks and productIon IIgures. As we know, starvatIon and
chronIc hunger can be wIdespread In countrIes that have Iood surpIuses or are even
exportIng Iood, thus earIy warnIng systems must aIso IncIude consIstent monItorIng oI
other data.
Today there are numerous systems In pIace through governments, InternatIonaI
organIzatIons, NCOs, and research InstItutIons that Iook at a wIde range oI IndIcators In
order to detect IncreasIng Iood InsecurIty earIy on In the process. Such IndIcators IncIude
copIng mechanIsms, changes In asset vaIues and other socIaI IndIcators; meteoroIogIcaI
data; agrIcuIturaI productIon and Iood suppIy IIgures; and market prIces and terms-oI-
trade. n addItIon to sophIstIcated natIonaI and regIonaI IeveI systems, many vIIIage or
dIstrIct-based InIormatIon systems exIst that Iocus more cIoseIy on IocaIIzed condItIons and
the copIng behavIors partIcuIar to that communIty. To maxImIze resources, avoId
repIIcatIon and have access to the most comprehensIve set oI IndIcators, coIIaboratIon and
InIormatIon-sharIng among InIormatIon-coIIectors Is crucIaI.
3. KnowIedge oI IocaI copIng mechanIsms: A cIear understandIng oI copIng mechanIsms Is
a necessary prerequIsIte both Ior accurate earIy warnIng and Ior the ImpIementatIon oI
mItIgatIon actIvItIes whIch wIII boIster peopIes' own capacItIes and means oI copIng wIth
crIses. CareIuI anaIysIs wIII reveaI both the strategIes and the order In whIch they
generaIIy occur as weII as the assets whIch are most Important to preserve gIven
partIcuIar IIveIIhoods. Even wIthIn a country or provInce, dIIIerent groups oI peopIe may
have dIIIerent ways oI deaIIng wIth crIses. The seIIIng oII oI IIvestock, Ior exampIe, Is a
much more desperate measure Ior pastoraIIsts, whose IIveIIhoods depend on
maIntaInIng herds, than Ior agrIcuIturIsts who keep anImaIs as "savIngs accounts" rather
than productIve assets. UnIamIIIarIty wIth peopIes' unIque ways oI protectIng theIr
IIveIIhoods and IIves can Iead to InapproprIate measures that wIII IaII to mItIgate the
Impact oI the crIsIs at hand.
These categorIes oI InIormatIon, whIch take reaI commItment to consIstentIy monItor and
anaIyze, are necessary to brIdge the gap between deveIopment and reIIeI and to eIIectIveIy
reduce or curtaII the need Ior emergency response, partIcuIarIy Ior sIow-onset dIsasters.
However, InIormatIon aIone wIII be oI no beneIIt to those who suIIer Irom crIses unIess It Is
used to pIan and ImpIement tImeIy and approprIate mItIgatIon InterventIons. To make thIs
IInk, there Is a need Ior a response mechanIsm or a pIan oI actIon that wIII heIp peopIe to
preserve theIr sources oI IIveIIhood and meet ImmedIate consumptIon and basIc needs.
1.2.4.3 DIsaster Preparedness
DIsaster preparedness can be deIIned as strategIes and capacItIes deveIoped durIng non-
crIsIs perIods to coIIect and dIssemInate reIevant InIormatIon, dIagnose the sItuatIon, pIan
Ior contIngencIes, and stock necessary emergency Inputs. The IoIIowIng sectIon provIdes an
approach to contIngency pIannIng whIch Is a crItIcaI step In emergency preparedness.
ContIngency PIannIng: What Is It and why do ItZ
n October 1996, the UN CompIex Emergency
TraInIng nItIatIve (CET) deveIoped guIdeIInes Ior
emergency preparedness. The guIdeIInes deIIne
emergency preparedness actIvItIes as those that aIm
to protect IIves and property Irom an ImmedIate
threat, to promote rapId reactIon In the ImmedIate
aItermath oI a dIsaster, and to structure the response
to both the emergency and Ionger-term recovery
operatIons.
There are Iour Interdependent prerequIsItes Ior
preparedness Ior a rapId and eIIectIve emergency
response.
PIannIng
AvaIIabIIIty oI standby resources (IInancIaI, human and materIaI)
A mechanIsm Ior rapId decIsIon makIng
TakIng contIngency actIons
SpecIIIc actIons that can or shouId be taken at both the IIeId and headquarters IeveIs durIng
the preparedness stage oI contIngency pIannIng IncIude ImpIementatIon oI:
InternaI management mechanIsms,
resource actIons (preIImInary IdentIIIcatIon oI personneI, materIaI and equIpment
needs),
Inter-agency co-ordInatIon mechanIsms.
ContIngency pIannIng Is a Iorward pIannIng process In a state oI uncertaInty In whIch
scenarIos and objectIves are agreed, managerIaI and technIcaI actIons deIIned and potentIaI
response systems put In pIace to prevent or Improve response to an emergency.
ContIngency pIannIng Ior CRS shouId be:
a dynamIc process, Iocused on preparatIon and IIexIbIIIty,
Integrated Into on-goIng projects and pIannIng actIvItIes,
[DIsaster research conIIrms], that
preparedness, IIke emergency
response, Is not an actIvIty to be
InItIated as an extraneous eIIort or
outsIde InItIatIve. t must be
actIveIy carrIed out by whomever
wIII have a roIe In provIdIng
emergency servIces and It must be
Integrated Into on-goIng servIces
and programs.
UNCEF, 1995
a useIuI source oI InIormatIon Ior managers, programmIng staII and emergency
oIIIcers,
an IntegraI part oI aII CRS preparedness actIvItIes,
addresses onIy scenarIos whIch are IIkeIy to Impact CRS operatIons or requIre
CRS actIon, and
IIeId based.
The essentIaI eIements oI a contIngency pIan are:
scenarIos and trIgger events,
strategIc objectIves,
prIorItIes (operatIonaI objectIves),
resource needs,
IIkeIy roIes and responsIbIIItIes,
securIty updates, and
reguIarIy revIewed, vaIIdated and amended as necessary.
Most ImportantIy, contIngency pIannIng must be understood as a process, not a one-oII
actIvIty that resuIts In a report that Is put on a sheII. ContIngency pIans must be on-goIng
and updated reguIarIy as a sItuatIon evoIves to be eIIectIve.
n order to know when contIngency pIannIng must occur and, In partIcuIar, when such
pIannIng shouId kIck Into hIgh gear, earIy warnIng InIormatIon must be monItored. The
CET guIdeIInes deIIne earIy warnIng as a process oI InIormatIon gatherIng and poIIcy
anaIysIs to aIIow the predIctIon oI deveIopIng crIses and actIon eIther to prevent them or
contaIn theIr eIIects.
The RoIe oI EarIy WarnIng In ContIngency PIannIng
An earIy warnIng system Is essentIaIIy the ongoIng coIIectIon and anaIysIs oI InIormatIon
that Ieeds Into a contIngency pIannIng process.
For earIy warnIng to be eIIectIve, key IndIcators must be IdentIIIed and InIormatIon coIIected
Irom a varIety oI sources. Sources can IncIude the aIIected popuIatIon ItseII, the IocaI
popuIatIon, church representatIves, journaIIsts, poIItIcaI entItIes, other NCOs and UN
agencIes. nIormatIon can be coIIected on earIy warnIng IndIcators such as, In the case oI
reIugee emergencIes, the buIIdup oI ethnIc, reIIgIous or socIaI tensIons; poIItIcaI InstabIIIty;
a naturaI dIsaster event; or IncreasIng human rIghts abuses. n addItIon to these Iactors
that may prompt a reIugee movement, there are aIso what are caIIed "puII" Iactors that may
exIst. For exampIe, "puII" Iactors can IncIude aIready estabIIshed reIugee communItIes In
the potentIaI host country; shared Ianguage, cuIture, reIIgIon; ease oI the mIgratIon routes;
or, perceIved IIberaI asyIum poIIcIes. When anaIyzIng IndIcators that may prompt a reIugee
movement It Is aIso Important to consIder other IntervenIng Iactors such as the poIIcIes oI
the potentIaI host country (e.g., are the borders cIosed and careIuIIy patroIIed); aIternatIves
to IIIght (e.g., have InternaIIy dIspIaced camps been estabIIshed); and, constraInts to IIIght
(e.g., Is wInter settIng In thus creatIng ImpassabIe roads). FInaIIy, when reguIarIy coIIectIng
and anaIyzIng earIy warnIng InIormatIon, It Is Important to recognIze trIggerIng Iactors, or
those Iactors that wIII prompt more actIve contIngency pIannIng. TrIggerIng Iactors In a
reIugee emergency can IncIude Iactors such as a naturaI dIsaster, a new type oI person
aIIected, a sIgnIIIcant Increase In the IntensIty oI the sItuatIon or borders beIng opened to
reIugees.
CoIIectIng and anaIyzIng earIy warnIng InIormatIon Is not necessarIIy a scIentIIIc process.
ntuItIon and experIence pIay Important roIes In determInIng when the coIIectIon oI earIy
warnIng InIormatIon Is necessary and, more ImportantIy, when earIy warnIng anaIysIs
IndIcates the need Ior actIve contIngency pIannIng. t Is easIer to IInd reasons not to coIIect
earIy warnIng InIormatIon than the opposIte. CoIIectIng and anaIyzIng such InIormatIon
reguIarIy takes tIme and resources. n the case oI a partIcuIarIy sensItIve sItuatIon, such
actIvIty can even be perceIved as poIItIcaI In nature. Yet the vaIue oI cIoseIy trackIng
deveIopments that may Iead to an emergency and conductIng preparedness actIvItIes based
on that InIormatIon Is obvIous when It posItIons a reIIeI agency to respond more eIIIcIentIy
and eIIectIveIy to an emergency event when It occurs. Cood coordInatIon and InIormatIon
sharIng wIth other actors can reduce the burden oI InIormatIon coIIectIon and contrIbute to
more comprehensIve anaIysIs.
DeveIopIng ScenarIos
One oI the IIrst tasks In a contIngency pIan Is to deveIop scenarIos and trIggerIng events.
ScenarIo pIannIng shouId be based on experIence and earIy warnIng IndIcators. ThIs actIvIty
Is IntuItIve yet oI vItaI Importance In the pIannIng process sInce It creates the basIs Ior
Iurther pIannIng. n scenarIo pIannIng aII possIbIIItIes shouId be consIdered, partIcuIarIy
worst and best case scenarIos. OI aII the possIbIIItIes, the probabIIIty oI each scenarIo
shouId be dIscussed. OI the three to Iour most probabIe scenarIos, those In whIch CRS
wouId be most IIkeIy to respond shouId be used as the basIs Ior Iurther pIannIng.
The essentIaI eIements Ior scenarIo deveIopment are as IoIIows.
Step 1: DescrIbe the current sItuatIon and deveIop baseIIne InIormatIon.
LIkeIy number oI peopIe aIIected (IocatIon, status and condItIons)
The IeveI oI InsecurIty and other generaI condItIons
A descrIptIon oI current CRS operatIons
An overvIew oI agency capacItIes In the regIon
Other agency resources
Step 2: DeIIne probabIe changes (scenarIos).
State whIch varIabIes couId aIIect the country and]or regIon (securIty]conIIIct,
economIc condItIons, poIItIcaI Issues, eIectIon outcomes, crop productIon, etc.)
ProvIde some generaI scaIe to rank the current sItuatIon oI the varIabIes (e.g.,
securIty condItIons are: good-IaIr-poor)
Step 3: SeIect scenarIos Ior Iurther deveIopment and anaIyze agaInst varIabIes.
EIImInate those wIth extremeIy Iow probabIIIty
EIImInate those whIch wouId not Impact CRS operatIons
Step 4: CIearIy state assumptIons Ior scenarIos.
ExampIe
AssumptIon
tems Irom Step 1 Current SItuatIon Ior ScenarIo X TrIggerIng Events
Number aIIected 100,000 250,000 8order opens
LocatIon oI aIIected Cathered at Y town MovIng towards
Z border crossIng 8order opens
Step 5: dentIIy possIbIe trIggerIng events Ior each scenarIo that wouId set your preparatIon
or operatIonaI pIans In motIon.
WrItIng a ContIngency PIan
The essentIaI eIements oI a contIngency pIan are as IoIIows.
dentIIy scenarIos and trIggerIng events (as descrIbed above)
DetermIne strategIc objectIves
Set prIorItIes (operatIonaI objectIves, actIvItIes)
dentIIy resource needs and capacItIes
AssIgn IIkeIy roIes and responsIbIIItIes
Conduct securIty updates
Prepare the pIan
FoIIow up
A suggested Iormat Ior a contIngency pIan IoIIows.
SectIon 1 CeneraI SItuatIon and ScenarIos
. Current country operatIons
. 8ackground to current sItuatIon and anaIysIs oI root causes oI conIIIct
. ScenarIos (maxImum oI 3-4)
A. 8rIeI descrIptIon oI the scenarIo
8. AIIected popuIatIon proIIIe (who wouId be most aIIected; where are they Iocated;
wouId they move to seek protectIon and assIstance or stay In theIr homes; what
Is theIr ethnIc]economIc]reIIgIous proIIIe; etc.)
C. AntIcIpated Impact oI the scenarIo on humanItarIan needs
D. ntervenIng Iactors (constraInts to provIdIng protectIon and assIstance or to
aIIected popuIatIons to move, e.g., borders cIosed; dIIIIcuIty Ior an AmerIcan and
or CathoIIc organIzatIon to gaIn access to a partIcuIar country, etc.)
E. AssumptIons
F. Emergency response trIggerIng Iactors (when wouId the operatIonaI pIan kIck InZ
e.g., major mIIItary actIon)
SectIon 2 StrategIc ObjectIves
. OveraII strategIc goaI oI the program
. StrategIc objectIves
. Comments on the poIIcy stance oI current]probabIe partners (CarItas, UN, etc.) and
donors that may have an Impact on the aIIected popuIatIon and on our programs
SectIon 3 ObjectIves and ActIvItIes by Sector (the beIow IIst Is IIIustratIve;
actuaI objectIves IncIuded In the pIan depend on the anaIysIs
above)
. PoIIcy]Advocacy
. ProtectIon oI aIIected popuIatIon
. Food
V. LogIstIcs
V. nIrastructure and sIte pIannIng
V. SheIter
V. DomestIc needs]househoId support (NFs or non-Iood Items)
V. Water and SanItatIon
X. HeaIth and nutrItIon
X. CommunIty servIces
X. EducatIon
X. EconomIc ActIvItIes
Each sectIon shouId IncIude a consIderatIon oI the IoIIowIng.
Needs
Resources
Sector ObjectIves
ActIvItIes
TImIng
ExIstIng and proposed readIness measures
mpIementatIon responsIbIIItIes
Another useIuI approach to pIannIng Is to prepare some raw data Ior each possIbIe
InterventIon that can be utIIIzed Ior proposaI deveIopment. ThIs actIvIty Is partIcuIarIy
useIuI In ensurIng that aII staII are aware oI the standards to be used Ior sector
InterventIons. The Sphere Handbook Is very useIuI Ior thIs process sInce It contaIns
comprehensIve InIormatIon on mInImum standards and key IndIcators Ior severaI
emergency sectors.
ExampIe: Water: ProvIde suIIIcIent and good quaIIty water to meet the needs oI X
househoIds Ior cookIng, washIng and personaI hygIene.
standards]needs
15-20 IIters per person per day.
Adequate quaIIty.
ThInk oI IocaI popuIatIon.
AvoId truckIng II possIbIe.
Adequate on sIte storage.
Protect naturaI water sources.
DIstrIbutIon system-peopIe don't need to waIk too Iar.
SuItabIe water contaIners (IncIude In domestIc Items sector).
SectIon 4 Procedures Ior Feedback, MaIntenance and Future ActIon
DescrIbe how the pIan wIII be updated and revIsed, who wIII be responsIbIe Ior ensurIng thIs
wIII be done and how wIII the InIormatIon be dIssemInated.
Annexes
. Maps
. Cap dentIIIcatIon Chart
. SampIe Forms (regIstratIon, waybIIIs, etc.)
V. MatrIx oI CommodItIes wIth theIr specIIIcatIons
V. PotentIaI suppIIers (IocaI and InternatIonaI)
V. 8udget estImates
Process Outputs
The pIan
RoIes and responsIbIIItIes cIarIIIed; key reIatIonshIps estabIIshed Ior coordInatIon
dentIIIcatIon oI traInIng]capacIty buIIdIng needs and scheduIes Ior such actIvItIes
LIkeIy projects and estImated budgets II possIbIe
Standby arrangements such as stockpIIes and staII
Preparedness checkIIsts
These outputs are to be reguIarIy revIewed, vaIIdated and amended as the process
contInues.
The characterIstIcs oI a good contIngency pIan are:
ComprehensIve, yet not too detaIIed
8aIanced between IIexIbIIIty and concrete actIons
WeII structured, easy to read and easy to update
A IIvIng document, consIstentIy updated, amended and Improved
What Is the dIIIerence between a ReIugee and An
nternaIIy DIspIaced PersonZ
A person becomes a reIugee onIy when he]she
crosses an InternatIonaI border. n contrast, an
InternaIIy dIspIaced person remaIns InsIde the
boundarIes oI hIs]her own country. Thus, the
dIIIerence between reIugees and InternaIIy
dIspIaced persons Is technIcaI and IegaI, and has
IIttIe to do wIth theIr reasons Ior IIIght. 8oth
categorIes oI persons are oIten aIIected by the
same causes oI dIspIacement. They oIten have
IdentIcaI protectIon and materIaI needs that
deserve the equaI attentIon oI the InternatIonaI
communIty. Most humanItarIan agencIes have the
operatIonaI IIexIbIIIty to address the needs oI
both reIugees and InternaIIy dIspIaced persons.
UNHCR, whose statutory mandate Is to protect
reIugees, has been authorIzed, on an ad hoc
basIs by the UnIted NatIons , to act on behaII oI
InternaIIy dIspIaced persons.
ProtectIng ReIugees: A FIeId CuIde Ior NCOS,
UnIted NatIons PubIIcatIons, Ceneva, May 1999
8ox 1.6
1.2.5 Cross-cuttIng Themes In CRS Emergency Response
1.2.5.1 The RIghts-based Approach to HumanItarIan ActIon
The rIghts-based approach to humanItarIan actIon Is Iounded on InternatIonaI Iaw,
partIcuIarIy on the UnIversaI DecIaratIon oI Human RIghts and the Ceneva ConventIons. The
UnIversaI DecIaratIon oI Human RIghts, aIong wIth the Covenants on CIvII and PoIItIcaI
RIghts and EconomIc, SocIaI and CuIturaI
RIghts, artIcuIates the IundamentaI
rIghts to IIIe and to an adequate standard
oI IIvIng. The rIghts-based approach Is
consIstent wIth CRS' IoundatIons In
CathoIIc SocIaI TeachIng.
The rIghts-based approach Iorms the
cornerstone oI The Sphere HumanItarIan
Charter and MInImum Standards In
HumanItarIan Response. The
HumanItarIan Charter expresses the
commItment oI NCOs to the prIncIpIes oI
humanItarIanIsm (see SectIon .3 Ior
more InIormatIon) and InternatIonaI Iaw,
IncIudIng the rIght to IIIe wIth dIgnIty;
the dIstInctIon between combatants and
non-combatants; and the prIncIpIe oI
non-reIouIement. FoIIowIng the
humanItarIan charter Is guIdance on how
to ensure that humanItarIan programs
are Indeed provIdIng the servIces needed
to ensure IIIe wIth dIgnIty by adherIng to
mInImum standards and key IndIcators In
IIve key areas: water, sanItatIon,
nutrItIon, Iood, sheIter, and heaIth care.
WhIIe InternatIonaI Iaw represents a deep and dIverse IIeId oI study, It Is Important Ior
humanItarIan workers to understand the key aspects oI thIs dIscIpIIne that aIIect emergency
work. For exampIe, as summarIzed In 8ox 1.6, InternatIonaI Iaw provIdes very dIIIerent
IegaI provIsIons Ior reIugees than Ior InternaIIy dIspIaced persons. ThIs can have a dIrect
Impact on emergency response work, especIaIIy In vIoIent conIIIct sItuatIons.
1.2.5.2 The CRS ]ustIce Lens and PeacebuIIdIng In EmergencIes
War represents perhaps the gravest assauIt on human dIgnIty. t Ieaves untoId thousands
dead or maImed aIong wIth muItItudes who are Iorced Irom theIr homes, IamIIIes separated,
IIveIIhoods destroyed, and socIetIes torn apart. CRS has a moraI obIIgatIon as an
organIzatIon Iounded on CathoIIc SocIaI TeachIng (CST) to actIveIy promote and protect
human dIgnIty. n the case oI vIoIent conIIIcts, thIs means that CRS has a responsIbIIIty to
not onIy reIIeve suIIerIng by provIdIng humanItarIan assIstance but aIso to dedIcate ItseII to
work Ior IastIng peace.
PeacebuIIdIng Is deIIned by CRS as a hoIIstIc approach that addresses the root causes oI
conIIIct and IncIudes the processes, InterventIons, strategIes, and methods to promote a
just peace. PeacebuIIdIng actIvItIes occur at every IeveI oI socIety, occur at any tIme (pre,
durIng, and post-conIIIct) and encompass a myrIad oI actIvItIes. DependIng on the nature
oI the conIIIct and usIng a varIety oI means, NCOs can contrIbute In some ways to the
avoIdance oI vIoIent conIIIct spIraIIng Into IuII bIown crIses. However, It Is equaIIy Important
that NCOs understand what they can and cannot address In terms oI peacebuIIdIng.
CompIex sItuatIons may arIse where prIncIpIes and approaches may conIIIct and aId
agencIes Iace dIIIIcuIt dIIemmas regardIng the use oI aId. Moreover, NCO actIvItIes that
strengthen cIvII socIety organIzatIons In the name oI peacebuIIdIng may be perceIved as
partIaI to one sIde or another oI a conIIIct. The anaIytIcaI tooI In TabIe 1.4 can be used to
careIuIIy anaIyze the appIIcatIon oI prIncIpIes to probIems In emergency programmIng.
The ]ustIce Lens Is one approach utIIIzed by CRS to anaIyze Its work. The prIncIpIes that are
at the core oI the ]ustIce Lens are drawn Irom CathoIIc SocIaI TeachIng and have aIso been
expressed In the CRS CuIdeIInes on HumanItarIan AssIstance In ConIIIct SItuatIons (see
Annex A). n emergencIes, CRS staII must make crItIcaI assessments oI the scope, tImIng,
nature, and extent oI needs and capabIIItIes. These sItuatIons IrequentIy InvoIve a state In
crIsIs, II not chaos. For CRS, the ]ustIce Lens Is a key eIement In the assessment oI these
emergencIes In terms oI anaIyzIng the root causes oI conIIIct In the same way we anaIyze
the root causes oI InjustIce In deveIopment programs. n vIoIent conIIIct sItuatIons,
however, thIs anaIysIs must aIso be coupIed wIth an understandIng oI humanItarIan
prIncIpIes and, In many cases, InternatIonaI Iaw. A basIc understandIng oI InternatIonaI Iaw
Is an essentIaI component oI appIIcatIon oI the ]ustIce Lens to a compIex emergency.
Armed wIth the vocabuIary oI InternatIonaI Iaw and an understandIng oI Its reIatIon to the
CRS ]ustIce Lens, CRS staII can more actIveIy engage In the humanItarIan aId communIty
usIng the common Ianguage oI InternatIonaI Iaw to coordInate wIth other actors In these
sItuatIons.
DurIng vIoIent conIIIct, NCOs are Iaced wIth dIIemmas regardIng the InterpIay between
peace, deveIopment, human rIghts, and justIce. I, as some argue, peace Is the pre-
requIsIte Ior deveIopment, human rIghts and justIce, then we shouId devote a much greater
TabIe 1.3
EIements oI a PeacebuIIdIng StrategIc Framework
Why: Assess our obIIgatIons, responsIbIIItIes as weII as the Intent oI our emergency
programmIng based on the CRS PrIncIpIes, CathoIIc SocIaI TeachIng, the ]ustIce Lens,
and humanItarIan prIncIpIes.
When: TImIng oI actIvItIes (pre-conIIIct, durIng and post-conIIIct). Short, medIum and Iong-
term responses based on ImmedIate dIsaster and humanItarIan needs and Ionger-term
conIIIct and peacebuIIdIng approaches.
How: DetermIne InIIuence and dynamIcs oI rIght reIatIonshIps durIng InterventIon by
specIIIcaIIy strengthenIng IocaI capacItIes Ior peacebuIIdIng (wIthIn the emergency
sItuatIon, but aIso regIonaIIy and InternatIonaIIy).
What: DetermIne strategIes and actIvItIes based on conIIIct mappIng, anaIysIs and
assessment.
Where: Context oI emergency InterventIon. DetermIne the Impact oI CRS InterventIons on
structures (IocaI, In US, InternatIonaI).
Who: ConsIder protectIon oI cIvIIIans and reIugees, IeadershIp IeveIs to be targeted and
partnershIp reIatIonshIps Ior InterventIon.
share oI our resources to the IIght Ior peace, IIrst and Ioremost, to prevent as weII as to put
an end to deadIy conIIIct. What wouId thIs IIght Iook IIkeZ The humanItarIan communIty
has acquIred some experIence In varIous aspects oI "peace programmIng," such as the LocaI
SupportIng PeacebuIIdIng In EmergencIes
CRS' emergency response programs oIten entaII the dIstrIbutIon oI sIgnIIIcant quantItIes oI materIaI
resources (e.g. Iood, sheIter, non-Iood Items). At the same tIme, CRS IncreasIngIy Iocuses on how these
actIvItIes can contrIbute to rehabIIItatIon and Ionger-term deveIopment as an expIIcIt requIrement oI
reIIeI programmIng. WhIIe It Is most oIten beyond the capacIty and InIIuence oI reIIeI and deveIopment
agencIes to sIgnIIIcantIy contrIbute to peace In sItuatIons oI vIoIent conIIIct, agencIes now concede that
the resources oI emergency programs have oIten had, and contInue to have, an enormous potentIaI to
reInIorce socIetaI dIvIsIons or exacerbate vIoIent conIIIct. Some strategIes exIst to reduce thIs possIbIIIty.
Use partIcIpatory processes to IdentIIy needs oI aII groups wIthIn a popuIatIon and to determIne the
type amount, storage, and dIstrIbutIon oI materIaI goods.
CoIIaborate wIth other agencIes to deveIop modI operandI that avoId IueIIng the conIIIct by
dupIIcatIon and manIpuIatIon oI eIIorts and resources and dIstortIng the economy.
ConsIder constructIveIy engagIng beIIIgerents In dIscussIng ways they couId meet peopIe's needs.
ntegrate sustaInabIe deveIopment approaches and objectIves Into reIIeI eIIorts.
8e aware oI the ImpIIcIt ethIcaI messages regardIng the use oI arms (especIaIIy where some NCOs
use mIIItary protectIon Ior personneI and suppIIes) and the ways In whIch unequaI vaIue may be
pIaced on the IIves and expertIse oI IocaI peopIe and expatrIates (e.g. who Is empIoyed, In what
capacIty, and when and how evacuatIon occurs, and Ior whom).
Support IndIgenous conIIIct resoIutIon mechanIsms when approprIate.
CRS: AppIyIng the ]ustIce Lens to ProgrammIng, 1998
8ox 1.7
UnderIyIng Causes oI ConIIIct: the EconomIc Factor
t Is common Ior reportIng on vIoIent conIIIct to Iocus on the ethnIc and]or reIIgIous nature oI the
conIIIct. The crItIcaI roIe oI economIcs as an underIyIng cause oI conIIIct Is oIten underpIayed In
the InternatIonaI medIa. Research by the WorId 8ank IdentIIIed stronger IInks between certaIn key
economIc Iactors (such as dependence on prImary commodIty exports and Iow natIonaI Income)
and cIvII conIIIct than wIth any ethnIc or reIIgIous Iactor. n a statIstIcaI anaIysIs conducted on
gIobaI data on cIvII conIIIcts between 1965 and 1999, the rIsk Ior cIvII war was systematIcaIIy
IInked most strongIy to dependence on prImary commodIty exports, Iow average Incomes, sIow
growth, and a Iarge dIaspora.
The author oI thIs research, PauI CoIIIer, states that, whIIe a Iactor, ethnIc and]or reIIgIous
dIIIerences do not pIay as serIous a roIe as a predIctor oI vIoIent conIIIct, but are manIpuIated by
beIIIgerents In order to Iorm more paIatabIe "objectIve grIevances" Ior IIghtIng. ThIs Is not just a
by-product oI conIIIct, but an essentIaI actIvIty Ior a rebeI organIzatIon. The generaI pubIIc wIII be
more wIIIIng to take up arms to IIght agaInst an "oppressor" than to IIght to gaIn economIc weaIth
Ior the rebeIIIon Ieaders. UnIortunateIy, accordIng to CoIIIer, "whIIe these objectIve grIevances do
not generate vIoIent conIIIct, vIoIent conIIIct generates subjectIve grIevances.by the end oI a cIvII
war, there Is Intense Inter-group hatred based upon perceIved grIevances."
n addItIon, the study aIso Iound that countrIes that have recentIy experIenced vIoIent conIIIct run
a very hIgh rIsk oI returnIng to conIIIct In the IIrst ten years oI post-conIIIct peace, thus
emphasIzIng the Importance oI post-conIIIct programs to soIIdIIy peace that support economIc
deveIopment and poverty aIIevIatIon.
www.worIdbank.org]research]conIIIct]papers]cIvIIconIIIct.htmI
8ox 1.8
CapacItIes Ior Peace approach and conIIIct transIormatIon actIvItIes. 8ut what does It reaIIy
mean to program Ior peaceZ n the mIdst oI vIoIent conIIIcts, where cIvII socIety has been
eIIectIveIy squashed or destroyed, understandIng pre-conIIIct and current socIaI structures
provIde a necessary basIs Ior anaIyzIng reIatIonshIps and prIorItIzIng actIvItIes that may
contrIbute to the eventuaI rebuIIdIng oI cIvII socIety. 8ut thIs represents onIy one part oI the
whoIe and, once agaIn, there remaIn more questIons than answers. A recent study by the
WorId 8ank provIdes empIrIcaI data that IInks the economIc aspects oI a socIety to the
potentIaI Ior vIoIent conIIIct (see 8ox 1.8). The resuIts oI thIs study make aII the more
Important the roIe oI economIc deveIopment In peacebuIIdIng.
1.2.5.3 Do No Harm
HumanItarIan actors workIng In conIIIct sItuatIons cannot provIde assIstance In a vacuum,
wIthout consIderIng theIr own roIe In the dynamIcs oI the conIIIct and In the reIated
InternatIonaI poIItIcaI arena. War tears socIetIes apart; IamIIIes are separated, IIveIIhoods
destroyed, new power reIatIons Iormed. There are aIways wInners and Iosers In war, and the
power wIeIded by the wInners shapes new reIatIonshIps and shIIts In the power wIeIded by
partIcuIar groups and across groups. t Is the responsIbIIIty oI humanItarIan reIIeI agencIes
to understand these dynamIcs In order to mInImIze the roIe oI aId In exacerbatIng
expIoItatIve power reIatIonshIps, and In order to maxImIze the contrIbutIons oI our actIvItIes
to sustaInabIe peace. 8eIore vIoIent conIIIct, NCOs and other members oI cIvII socIety oIten
serve as prImary wItnesses to the IncreasIng human rIghts abuses that oIten presage vIoIent
conIIIct. We work In communItIes dIrectIy aIIected by growIng vIoIence and watch as the
deveIopment actIvItIes we support coIIapse under the weIght oI growIng InstabIIIty. Our
own staII themseIves begIn to IeeI the pressures to take sIdes. t Is oI utmost Importance
that CRS staII workIng In these sItuatIons be aware oI the roIe oI humanItarIan actors and
reIIeI Items In the dynamIcs oI conIIIct. The LocaI CapacItIes Ior Peace (LCP) anaIytIcaI
Iramework oIIers an approach to avoId our work havIng a negatIve Impact on socIetaI
tensIons]conIIIct, whIIe reInIorcIng capacItIes Ior peace at the IocaI IeveI. The project has
IdentIIIed patterns In whIch humanItarIan and deveIopment aId may InadvertentIy exacerbate
or cause conIIIct, as weII as optIons Ior supportIng IocaI capacItIes Ior peace. The anaIytIcaI
tooI Is tItIed Framework Ior ConsIderIng the mpact oI AId on ConIIIct and It Is avaIIabIe In
the CRS Project ProposaI CuIdance.
Another aspect oI a Do No Harm approach Is reIIected In the potentIaI Ior reIIeI suppIIes to
be manIpuIated negatIveIy by aId workers themseIves. StudIes conducted In reIugee camps
In West AIrIca In 2001 reveaIed Instances oI some aId workers tradIng reIIeI suppIIes Ior sex
wIth some oI the most vuInerabIe members oI the dIsaster-aIIected popuIatIon. ThIs
unacceptabIe practIce has Ied to eIIorts on the part oI NCOs and UN agencIes to deveIop
guIdeIInes on the protectIon oI dIsaster-aIIected popuIatIons. CRS staII are expected to
maIntaIn the hIghest degree oI proIessIonaIIsm In carryIng out theIr responsIbIIItIes In
emergency sItuatIons. CuIdance on thIs can be Iound In the CRS SecurIty and StaII SaIety
CuIdeIInes regardIng personaI behavIor. More guIdance wIII be avaIIabIe In the IorthcomIng
Emergency LogIstIcs CuIdeIInes whIch addresses the Issue oI transparency In aId programs
and the responsIbIIIty oI aId workers to ensure that the dIsaster-aIIected popuIatIon know
theIr rIghts.
1.2.5.4 CoordInatIon
As artIcuIated In the CRS CuIdeIInes Ior HumanItarIan ActIon In ConIIIct SItuatIons (see
Annex A), CRS supports and wIII partIcIpate In coordInated pIannIng, assessment and
operatIons InsoIar as they are consIstent wIth our prIncIpIes and condItIons oI response.
Such coordInatIon Is a crItIcaI component In mountIng an eIIectIve emergency response
program. ThIs IncIudes coordInatIon wIth Church partners, NCOS, the Red Cross Movement,
donors, UN agencIes, Inter-governmentaI organIzatIons, and governments. The most crItIcaI
IeveI oI coordInatIon Is In the IIeId. 8ut coordInatIon shouId aIso occur at the InternatIonaI
IeveI, especIaIIy In the areas oI advocacy, pubIIc educatIon, and InIormatIon sharIng.
CoordInatIon Is an essentIaI eIement oI any quaIIty humanItarIan actIon, especIaIIy In acute
stages oI an emergency when the need Ior strong communIcatIon and coordInated actIon Is
paramount. WhIIe It Is acknowIedged that It Is Important, coordInatIon Is not aIways a top
prIorIty. DIIIerIng organIzatIonaI mandates and competItIon sometImes Iead to a resIstance
to coordInate. The UnIted NatIons OIIIce Ior CoordInatIon oI HumanItarIan AIIaIrs (OCHA)
has an expIIcIt mandate to coordInate the work oI UN agencIes In emergencIes. NCOs oIten
joIn In thIs coordInatIon system when there Is a cIear beneIIt to doIng so. Such beneIIts can
IncIude the provIsIon oI InIormatIon that Is useIuI to the whoIe humanItarIan communIty
such as the number and IocatIon oI dIsaster-aIIected popuIatIons. OCHA can aIso serve an
Important IunctIon In IIaIsIng wIth governments and]or beIIIgerents to advocate on behaII oI
aII aId agencIes Ior humanItarIan access. n addItIon to coordInatIon oI the overaII
humanItarIan communIty, there are oIten sectoraI coordInatIon meetIngs In emergencIes
that Iocus on the technIcaI aspects oI programs.
There may be IegItImate dIIIerences In opInIon about who shouId Iead coordInatIon eIIorts
and what theIr roIes and responsIbIIItIes shouId be. NevertheIess, a coordInated emergency
response Is more eIIectIve and eIIIcIent than an uncoordInated one and every eIIort shouId
be made to ensure strong communIcatIon and InIormatIon sharIng amongst the
humanItarIan aId communIty whenever possIbIe. The Cap dentIIIcatIon Chart In Annex H Is
a tooI that can be used to ensure that aII aspects oI an emergency are addressed In a
coordInated IashIon.
1.2.5.5 CapacIty 8uIIdIng and PartnershIp
Many NCOs operatIng In emergencIes strIve to buIId IocaI capacItIes, to support sustaInabIe
IIveIIhoods and to avoId creatIng dependencIes. One way to do thIs Is through capacIty
buIIdIng actIvItIes. CapacIty buIIdIng can be ImpIemented at a varIety oI IeveIs and wIth a
varIety oI groups. For exampIe, CRS promotes capacIty buIIdIng oI staII, partners and
communItIes. CapacIty buIIdIng Is IntegraIIy IInked to partnershIp. WIthout a strong
partnershIp, capacIty buIIdIng actIvItIes are rareIy successIuI. CRS strIves In aII oI Its reIIeI
and deveIopment work to buIId partnershIps wIth other organIzatIons that share our vaIues
such as a commItment to justIce and the protectIon and promotIon oI human dIgnIty. n
thIs same veIn, there are aIso sItuatIons In whIch CRS may make a decIsIon to dIrectIy
ImpIement emergency actIvItIes. ThIs decIsIon Is based on the urgency oI the needs, the
capacIty oI CRS to respond, and the capacIty oI IocaI partners to respond.
CapacIty buIIdIng can aIso be deIIned as any InterventIon desIgned eIther to reInIorce or
create strengths upon whIch communItIes can draw to oIIset dIsaster-reIated vuInerabIIIty
(Lautze, Hammond, CopIng wIth CrIsIs, CopIng wIth AId, 1996). One way to do thIs Is to
support IocaI copIng mechanIsms. CopIng mechanIsms are responses to repeated shocks to
peopIe's IIveIIhoods. CopIng mechanIsms are broad and varIed. Some exampIes IncIude
measures such as Increased eatIng oI wIId Ioods In tImes oI Iood shortages or peopIe
comIng together to provIde assIstance to vuInerabIe groups wIthIn theIr communIty. Most
organIzatIons support IocaI copIng mechanIsms that strengthen the abIIIty oI a communIty
to survIve a shock to theIr IIveIIhood system wIthout externaI assIstance. ResortIng to
copIng mechanIsms, however, Is a sIgn oI dIstress and repeated use oI copIng mechanIsms
or the use oI "Iast resort" copIng mechanIsms, such as seIIIng oI assets, may Iead to Iong-
term damage to a IIveIIhood system. NCOs must be abIe to recognIze IocaI copIng
mechanIsms that strengthen a communIty and those copIng mechanIsms that represent
potentIaI Iong-term or permanent damage to a communIty. n the Iatter case, NCOs such as
CRS and our partners may make the decIsIon to step In to provIde support to communItIes
to protect, and eventuaIIy to recover, theIr IIveIIhoods.
Emergency Preparedness and Response
TraInIng Programs
SeveraI CRS country programs, especIaIIy those Iocated In countrIes wIth cycIIcaI or chronIc
dIsasters, have engaged over the past Iew years In capacIty buIIdIng projects Ior IocaI partners
that emphasIze emergency preparedness. Such programs have been ImpIemented to date In
AngoIa, Congo]8razzavIIIe, Uganda, CuatemaIa, and ndonesIa.
One such program Is the Western Emergency Preparedness Program (WEPP) In Uganda. WEPP Is
desIgned to Improve the abIIIty oI IocaI actors to respond to and mItIgate the eIIects oI
emergencIes. PartIcIpants are Irom the IocaI dIoceses, Irom IocaI government DIstrIct DIsaster
Management CommIttees, and severaI IocaI NCOs.
The program, due to Iast over thIrty months, Is desIgned to Improve aII areas oI the partIcIpant
agencIes' abIIItIes In dIsaster management and emergency preparedness. Workshops topIcs
IncIude ContIngency and MItIgatIon PIannIng, OrganIsatIonaI CapacIty Assessment and
mprovement, Emergency LogIstIcs, Assessment, MonItorIng and EvaIuatIon, and generaI
Emergency Management. The course topIcs are aImed at IncreasIng the agencIes' abIIItIes In
these IIeIds and to contrIbute to theIr capacIty to draw up theIr own ContIngency PIans.
One beneIIt oI havIng so many dIsparate actors IearnIng and workIng together Is the aIr oI co-
operatIon that Is Iostered. 8y workIng together, they Iearn about shared standards and
approaches and share the same Ianguage. They aIso get an apprecIatIon oI the roIes each may
pIay In a coordInated eIIort to deaI wIth any emergency that shouId occur In the Iuture. 8y
workIng together, they Increase theIr overaII abIIIty to support dIsaster-aIIected popuIatIons wIth
quaIIty programs.
8ox 1.9
1.2.5.6 TransItIon ProgrammIng
n conIIIct sItuatIons, the necessary eIements oI a successIuI transItIon Irom war to
sustaInabIe peace remaIn eIusIve. NCOs Iace many barrIers to successIuI transItIon
programmIng. 8ecause oI the hIgh degree oI uncertaInty regardIng the commItment oI
beIIIgerents to peace, NCOs are reIuctant to dIsmantIe emergency structures or to Invest In
transItIon actIvItIes. DemobIIIzatIon and dIsarmament oI ex-combatants Is compIIcated,
especIaIIy II IIghters are rejected by theIr communItIes due to past atrocItIes. CIven the
nature oI the conIIIct, Iarge segments oI the generaI popuIatIon may be suIIerIng Irom
psycho-socIaI trauma. t may be dIIIIcuIt to access IundIng Ior approprIate actIvItIes at the
approprIate tIme due to the prIorItIes oI donor agencIes and the generaI Iack oI consensus
on what constItutes transItIon actIvItIes. AII oI thIs occurs In an envIronment In whIch
structuraI InjustIces that contrIbuted to the conIIIct In the IIrst pIace oIten remaIn
unresoIved and thereIore contInue to IInger behInd the Iacade oI peace.
One oI the most Important Iactors to take Into consIderatIon at the very begInnIng oI a
dIsaster response Is the exIt or transItIon strategy. The tImIng oI shIIts to more
deveIopmentaI types oI actIvItIes may not be easIIy IdentIIIabIe, but shouId be consIdered In
the anaIysIs and project desIgn stage to the extent possIbIe. ndIcators can be IdentIIIed
that wIII be monItored to assIst In makIng the programmIng decIsIon to shIIt Irom reIIeI
actIvItIes to transItIon and deveIopment actIvItIes. n RIsIng Irom the Ashes, Anderson and
Woodrow caII on NCOs to be responsIbIe Ior the deveIopmentaI Impact oI theIr reIIeI work.
DescrIbIng the IInkage between emergency response and deveIopment, they aIso dIscuss the
Importance oI actIvItIes reIated to preparedness and mItIgatIon: "Awareness oI the
reIatIonshIps between dIsaster response and deveIopment Is IundamentaI to preparedness
and mItIgatIon. n the IInaI anaIysIs, because the IocaI capacIty Is Increased through
deveIopment to the poInt where It can cope wIth crIses that occur, even dIsaster "preventIon"
Is possIbIe."
PrIncIpIe-Ied ProgrammIng 1.3
CRS extoIs prIncIpIe-Ied programmIng In Its reIIeI and deveIopment actIvItIes. From the
agency's IoundatIons In CathoIIc SocIaI TeachIng to the technIcaI program quaIIty
statements that InIorm sectoraI InterventIons, prIncIpIes, standards and approaches InIorm
our work. CRS' work In emergencIes Is InIormed by aII oI the above as weII as by
InternatIonaI Iaw and prIncIpIes reIated specIIIcaIIy to humanItarIan sItuatIons.
HumanItarIan actIon In an organIzed sense Is a reIatIveIy new concept. The IIrst modern
humanItarIan organIzatIon, the nternatIonaI CommIttee oI the Red Cross (CRC), was
created In the Iate 19th century. SInce that tIme, many organIzatIons have come Into
exIstence wIth the expIIcIt objectIve oI provIdIng humanItarIan assIstance and protectIon.
Yet It was not untII the 1990s that humanItarIan organIzatIons began to deveIop prIncIpIes
and protocoIs by whIch to conduct assIstance and protectIon work. The prIncIpIes that Iorm
the basIs Ior humanItarIan work are based prImarIIy on InternatIonaI Iaw Instruments such
as the Ceneva ConventIons and ReIugee Law (see Annex D Ior addItIonaI InIormatIon).
CRS deveIoped Its own CuIdeIInes Ior HumanItarIan ActIon In ConIIIct SItuatIons In 1992
(IormerIy known as the Harper's Ferry CuIdeIInes). n 1994, the CRC]FRC and NCO Code oI
Conduct was deveIoped. AddItIonaI InIormatIon on these prIncIpIes can be Iound In
Annexes A, 8 and C. CRS strIves to adhere to the agency's guIdeIInes Ior conIIIct sItuatIons
(see Annex A) as weII as to the Iour core humanItarIan prIncIpIes artIcuIated In the
CRC]FRC]NCO Code oI Conduct (see Annex 8): humanIty, ImpartIaIIty, neutraIIty, and
Independence.
As a IaIth-based agency, CRS' work Is drIven by vaIues based on CathoIIc SocIaI TeachIng.
These vaIues are supported and compIemented by unIversaI human rIghts. n conIIIct
sItuatIons, these vaIues are Iurther supported by the core humanItarIan prIncIpIes. The
appIIcatIon oI vaIues and prIncIpIes In reaI sItuatIons presents chaIIenges. HumanItarIan aId
staII are oIten Iaced wIth ethIcaI dIIemmas In conIIIct sItuatIons. VaIues and prIncIpIes are
meant to assIst NCO staII to understand the moraI and ethnIcaI parameters wIthIn whIch
reIIeI work Is conducted.
The anaIytIcaI tooI Iound In TabIe 1.4 presents one way In whIch to anaIyze the appIIcatIon
oI prIncIpIes-Ied programmIng and the reIated beneIIts]rIsks. The IeIt coIumn IIsts some oI
the key prIncIpIes In humanItarIan response such as neutraIIty and ImpartIaIIty. 8eIow thIs Is
a IIst oI CRS core vaIues such as justIce and soIIdarIty. These are IoIIowed by the CRS
program quaIIty statements, generaI good practIce (e.g., accountabIIIty and transparency),
and varIous approaches that CRS supports such as capacIty buIIdIng and partIcIpatIon.
When pIannIng an emergency response program, especIaIIy when Iaced wIth ethIcaI
dIIemmas such as demands by rebeIs Ior reIIeI goods, It Is ImperatIve that staII careIuIIy
anaIyze the sItuatIon In terms oI the prIncIpIes under whIch CRS operates.
The reaIIty oI dIIemmas Iaced by staII In IIeId operatIons may resuIt at tImes In the
compromIsIng oI prIncIpIes. ReaIIty demands that a baIance be struck between
humanItarIan prIncIpIes, organIzatIonaI vaIues and program quaIIty prIncIpIes and standards
measured agaInst the beneIIts and rIsks to the dIsaster aIIected popuIatIon, CRS staII and
partner staII. There are never any easy responses to such dIIemmas. There Is, nonetheIess,
a responsIbIIIty on the part oI CRS to adequateIy address such Issues and careIuIIy anaIyze
the beneIIts and rIsks Ior takIng one decIsIon over another.
For more InIormatIon on the Items IncIuded In the IeIt coIumn oI TabIe 1.4 see:
Core HumanItarIan PrIncIpIes Annexes A, 8, C, D
CRS Core VaIues SectIon 1.1; CathoIIc SocIaI TeachIng
CRS QuaIIty Statements Annex E
Cood PractIces CIossary
Approaches SectIon 1.2.5
PrIncIpIes]Cood PractIces]Approaches ProbIem]ssue StrategIes to Address the
ProbIem]ssue
8eneIIts RIsks
Core HumanItarIan
PrIncIpIes
HumanIty
NeutraIIty
mpartIaIIty
ndependence
CRS Core VaIues
]ustIce
SubsIdIarIty
SoIIdarIty
StewardshIp
CRS QuaIIty Statements
Overseas ProgrammIng
OrIentatIon, raInIng, DebrIeIIng
SecurIty
StaIIIng
StaII Care
Procurement
MedIa
Cood PractIces
AccountabIIIty
Transparency
Approaches
CapacIty 8uIIdIng
PartnershIp
PartIcIpatIon
LocaI CapacItIes Ior Peace
Do No Harm
TabIe 1.4 AnaIytIcaI TooI Ior a PrIncIpIed Approach to Emergency ProgrammIng
AddItIonaI Resources
1. CRS Project ProposaI CuIdance
2. CRS PoIIcIes and CuIdeIInes Ior Overseas ProgrammIng
3. Sphere Project: HumanItarIan Charter and MInImum Standards In DIsaster Response Handbook
4. RIsIng Irom the Ashes, Anderson, Mary 8. and Peter Woodrow
5. LocaI CapacItIes Ior Peace, Mary b. Anderson
5. UN]CET ContIngency PIannIng CuIdeIInes
See 8IbIIography Ior detaIIs.
8ox 1.10
Emergency Program QuaIIty 2
n thIs sectIon you wIII IInd InIormatIon on the IoIIowIng topIcs.
2.1 CeneraI 8ackground on CRS Emergency Preparedness &
Response
ncIudes an operatIonaI Iramework and deIInItIons oI CRS core competencIes
Ior emergency programmIng.
2.2 Emergency Preparedness & Response Program QuaIIty
A dIscussIon on what CRS consIders the buIIdIng bIocks Ior quaIIty
emergency programmIng, conceptuaI Irameworks, emergency standards, the
project cycIe, and basIc project desIgn.
CeneraI 8ackground on CRS Emergency
Preparedness & Response 2.1
CRS works In coIIaboratIon wIth IocaI and InternatIonaI partners to provIde the most
eIIectIve emergency servIces possIbIe. HIgh quaIIty systems, standards and staIIIng are a
means to thIs end. From the very begInnIng oI an emergency, CRS and partners shouId
strIve to meet ImmedIate needs (savIng IIves), to support IocaI copIng mechanIsms and
IIveIIhood systems (supportIng IIveIIhoods) and to assIst the dIsaster-aIIected popuIatIon to
deveIop structures that wIII contrIbute to dIsaster preventIon, mItIgatIon and preparedness
In the Iuture (strengthenIng cIvII socIety). A baIanced approach that Integrates these three
eIements wIII contrIbute to an eIIectIve emergency response.
An operatIonaI Iramework, such as the one IIIustrated beIow, assIsts country programs to
thInk Iong term whIIe addressIng ImmedIate needs. ThIs operatIonaI Iramework heIps
programs to approach emergency operatIons Irom a deveIopment and justIce perspectIve,
I.e., to desIgn emergency response programs that buIId on the capacItIes and copIng
mechanIsms oI the aIIected popuIatIon, contrIbute to a quIck return to IIveIIhood supportIng
actIvItIes, and strengthen cIvII socIety organIzatIons as much as possIbIe Irom the very
begInnIng. PartIcuIar emphasIs Is pIaced on addressIng root causes and transIormIng - not
recreatIng - condItIons oI poverty and hIgh vuInerabIIIty.
Save
LIves
Support
LIveII hoods
Strengthen
CIvII SocIety
QuaIIty
Emergency
Program
FIgure 2.1
2.1.1 CRS Emergency Preparedness & Response Program QuaIIty
Statements and TechnIcaI Core CompetencIes
CRS promotes prIncIpIes-Ied programmIng. That Is to say, CRS has deveIoped quaIIty
statements and prIncIpIes Ior aII program areas and themes. QuaIIty statements are
descrIptIons oI programmatIc exceIIence In CRS core competencIes and cross-cuttIng
themes oI peacebuIIdIng, partnershIp and gender. Each quaIIty statement consIsts oI a
vIsIon oI what programs seek to achIeve In the Iong-term and a set oI guIdIng prIncIpIes Ior
our work In a gIven sector (AgrIcuIture, EducatIon, HeaIth) or theme (PeacebuIIdIng, Cender,
PartnershIp). QuaIIty statements Ior emergency preparedness and response can be Iound In
Annex E.
CRS aIso recognIzes that exceIIence In program quaIIty requIres Iocus In terms oI technIcaI
capacIty. CRS emergency programs are desIgned to meet the specIIIc needs oI dIsaster
aIIected popuIatIons. ThIs can mean a wIde varIety oI InterventIons, Irom Iood to sheIter to
cIothIng and educatIon materIaIs. CRS' commItment to program quaIIty, however, promotes
a Iocus on certaIn key areas oI InterventIon Ior whIch the agency wIII commIt resources to
ImprovIng our technIcaI capacIty. For emergency programmIng, CRS has Iour overseas
technIcaI core competencIes as descrIbed beIow. The CRS Emergency Response Team
Iocuses Its work on provIdIng technIcaI assIstance and deveIopIng guIdance, tooIs, and
traInIng moduIes to support exceIIence oI CRS programmIng In these areas.
Food and Non-Food ProgrammIng
ThIs reIers to the provIsIon oI Iood and non-Iood Items. ThIs categorIzatIon recognIzes that
Iood and non-Iood programmIng requIre a range oI skIIIs, IncIudIng but certaInIy not
IImIted to the IogIstIcs oI orderIng, storIng and dIstrIbutIng commodItIes. StaII InvoIved In
the desIgn oI Iood and non-Iood dIstrIbutIon programs shouId have strong backgrounds In
areas rangIng as broadIy as Iood securIty to the detaIIs oI InternatIonaIIy accepted technIcaI
standards Ior determInIng ratIon sIze and composItIon, number oI jerry cans per IamIIy,
contents oI hygIene kIts, etc.
PubIIc NutrItIon
ThIs sector reIers to CRS generaI dIstrIbutIon and suppIementary IeedIng programs and
what Is known as PubIIc NutrItIon, that Is, a broad-based probIem-soIvIng approach to
addressIng nutrItIonaI probIems oI popuIatIons or communItIes. n contrast to cIInIcaI
nutrItIon, the emphasIs Is shIIted Irom the IndIvIduaI to the popuIatIon IeveI, and Irom a
narrow set oI technIcaI InterventIons to a wIde range oI strategIes, poIIcIes and programs to
combat maInutrItIon.
PubIIc NutrItIon recognIzes that Iood InsecurIty Is onIy one oI the determInants oI
maInutrItIon In emergencIes, and InterventIons need to address both the heaIth and socIaI
envIronment to have an Impact on maInutrItIon. A PubIIc NutrItIon approach makes expIIcIt
the Impact oI the poIItIcaI, economIc and heaIth envIronment on a IamIIy's abIIIty to care Ior
Its members and ItseII. ThIs approach requIres that a context-specIIIc anaIysIs oI the types
and causes oI maInutrItIon Iorm the basIs oI decIsIon-makIng at aII stages oI the pIannIng
cycIes IncIudIng pIannIng and desIgnIng programs, ImpIementatIon, monItorIng and
evaIuatIon. ThIs sector dIrectIy supports CRS actIvItIes In generaI IeedIng as weII as
suppIementary IeedIng. CRS wIII not deveIop a core competency In therapeutIc IeedIng
whIch Is consIdered a medIcaI InterventIon.
PreventIve HeaIth Care
n generaI, thIs sector Iocuses on basIc preventIve heaIth care InterventIons IncIudIng the
controI and treatment oI dIarrheaI dIseases, treatment Ior acute respIratory InIectIon,
treatment and preventIon oI maIarIa, and an expanded ImmunIzatIon program. Ante- and
post-partum care, saIe deIIvery, and the promotIon oI breastIeedIng are other
recommended actIvItIes. n addItIon, CRS work In thIs area couId support InterventIons that
address mentaI heaIth Issues such as trauma and vIoIence agaInst women. These actIvItIes
represent those oI typIcaI CRS Mother-ChIId HeaIth and ChIId SurvIvaI programs as weII as
those actIvItIes oIten carrIed out by our IocaI CarItas counterparts. However, addItIonaI
work remaIns to be done to Iurther deIIne and reIIne CRS work In thIs sector.
AgrIcuIture Recovery
ThIs sector can be characterIzed as a process Ior whIch the maIn aIm Is to reestabIIsh
components oI IarmIng systems dIsturbed by dIsasters. ThIs IncIudes the pIannIng,
ImpIementatIon and monItorIng oI InterventIons In bIo-physIcaI aspects (seeds IaIrs,
restockIng oI IIvestock, anImaI husbandry, IarmIng practIces, IarmIng envIronment, Iand
husbandry) as weII as In the socIo-economIcs aspects (provIsIon oI tooIs, marketIng oI
agrIcuIture productIon, gender Issues).
These technIcaI core competencIes were seIected by partIcIpants In the December 1999
Emergency Preparedness & Response Program QuaIIty SummIt based on the IoIIowIng
crIterIa.
The reIatIonshIp oI the core competencIes to the IuIIIIIment oI the CRS vIsIon and
quaIIty statements Ior CRS emergency programs
Agency expertIse
Current CRS partner expertIse
CompIementarIty oI the seIected core competencIes themseIves (e.g. mutuaIIy
supportIve actIvItIes that address morbIdIty and mortaIIty In emergencIes), and
CRS actIvItIes versus those oI other NCOs and UN agencIes (e.g. CRS' partIcuIar vaIue-
added In a partIcuIar sector)
These core competencIes do not excIude CRS InvoIvement In other sectors, such as sheIter,
educatIon, or psycho-socIaI programmIng, II assessments IdentIIy these as prIorIty needs
Ior the aIIected popuIatIon and country program staII have the requIsIte technIcaI expertIse.
Moreover, It shouId be understood that the deIInItIon oI hIgh quaIIty programmIng In the
above sectors IncIudes the IntegratIon oI justIce anaIyses and the agency's cross-cuttIng
themes.
ExceIIence In emergency response program quaIIty Is achIeved when the above eIements are
oI hIgh quaIIty and are IuIIy Integrated Into an agency-wIde response. However, It Is
recognIzed that not aII oI the IIsted eIements wouId necessarIIy be IncIuded In every
emergency response at the onset but may be IncIuded over tIme or aIter the most
ImmedIate needs have been met. OveraII, the response must be taIIored to the specIIIc
operatIng context, both In the aIIected country and, In the case oI eIements such as
advocacy and gIobaI soIIdarIty, In the UnIted States.
Emergency Preparedness & Response
Program QuaIIty 2.2
2.2.1 8uIIdIng 8Iocks Ior Emergency Program QuaIIty
CRS Is dedIcated to provIdIng the hIghest quaIIty reIIeI servIces possIbIe. ThIs can be
achIeved when the aIIected country program and the varIous headquarters departments
InvoIved work together eIIectIveIy. FIgure 2.2. IIIustrates the key buIIdIng bIocks Ior
exceIIence In CRS emergency programmIng Irom an agency-wIde perspectIve. WIth the
understandIng that there may exIst externaI Iactors beyond our controI that aIIect program
quaIIty, the buIIdIng bIocks IdentIIIed are cIearIy wIthIn our controI. CapacIty buIIdIng In
these areas shouId be the Iocus oI our attentIon both In emergency and non-emergency
sItuatIons. 8eIow Is a brIeI expIanatIon oI each buIIdIng bIock.
TechnIcaI Inputs reIer to the human, materIaI and IInancIaI resources that contrIbute to
programs that are technIcaIIy sound and demonstrate best practIces In the sector. They are
generaIIy most eIIectIveIy appIIed wIthIn a Iramework Ior crItIcaI thInkIng and decIsIon
makIng such as a "resuIts" orIented pIannIng process. The pIannIng process Is on-goIng
and, In an emergency context, the eIements In the pIannIng cycIe need to be adapted
accordIng to the phase oI an emergency as per the FIgure 2.6 oI the Emergency Project
CycIe.
CRS prIncIpIes and prIorItIes are IundamentaI to what we choose to be about at CRS. 8eIore
any pIannIng takes pIace It Is Important that there Is cIarIty about CRS prIorItIes. CRS has
hIstorIcaIIy undertaken a varIety oI program actIvItIes. These shouId be seIected based on
the agency's organIzatIonaI capacIty to support hIgh quaIIty programs. CRS aIso has a
commItment to the prIncIpIes oI CathoIIc SocIaI TeachIng and reIated cross cuttIng themes,
wIth the most recent emphasIs on soIIdarIty and peacebuIIdIng.
EIIectIve systems support the other eIements contrIbutIng to program quaIIty. When the
need Ior IunctIonIng systems Is Irustrated, staII IInd It dIIIIcuIt to attend to other Iactors
essentIaI to program quaIIty. ExceIIent emergency programs requIre eIIectIve human
resources, IInance, IogIstIcs, and procurement systems to support program ImpIementatIon.
Resources are essentIaI to support aII oI the eIements above them. LInks wIth the Iarger
InternatIonaI communIty and the U.S. domestIc constItuency and Issues beyond program
FIgure 2.2 8uIIdIng 8Iocks Ior Emergency Program QuaIIty
TechnIcaI nputs
PIannIng Process
PrIncIpIes & PrIorItIes
Systems
Resources
PartnershIps
PoIIcy and Advocacy
Emergency
Program QuaIIty
8uIIdIng 8Iocks oI Program QuaIIty
ExternaI nIIuences on CRS Emergency
Program QuaIIty
Context oI
the
Emergency
Engagement
oI the
nternatIonaI
CommunIty
SecurIty
SItuatIon
Presence]
CapacIty oI
CathoIIc
Church
nterest LeveI
OI U.S.
DomestIc
ConstItuency
U.S.
Covernment
PoIIcy
quaIIty have a sIgnIIIcant Impact on the resources avaIIabIe. AddItIonaI InIormatIon on
varIous resources avaIIabIe to CRS emergency programs can be Iound In SectIon 3.
PartnershIp Is a very Important concept Ior CRS and an IntegraI eIement oI CRS emergency
programmIng. The vast majorIty oI CRS work In emergencIes Is conducted In cIose
coIIaboratIon wIth partners, Irom IocaI and InternatIonaI CarItas agencIes to other NCOs and
UN agencIes. PartnershIp prIncIpIes Ior CRS can be Iound on the CRS Intranet sIte
(Overops>PQSD> PartnershIp).
PoIIcy and Advocacy InIorm us oI what the agency and]or the UnIted States CathoIIc
ConIerence oI 8Ishops (USCC8) thInks about a partIcuIar Issue. PoIIcy and advocacy exIst at
both strategIc and operatIonaI IeveIs. For exampIe, the Program QuaIIty and Support
Department Is concerned wIth operatIonaI poIIcy Issues such as the exIstIng PoIIcy on the
Procurement, DIstrIbutIon and Use oI MIIk Products and nIant FeedIng EquIpment In FIeId
Programs. The PoIIcy and StrategIc ssues DIvIsIon at CRS headquarters has prImary
responsIbIIIty Ior Issues-reIated poIIcy IormatIon In CRS.
HumanItarIan actIon touches every department, unIt and IndIvIduaI In CRS Irom dIrect work
responsIbIIItIes to the IndIvIduaI desIre to assIst dIsaster-aIIected popuIatIons. mprovIng
the agency's overaII humanItarIan actIon capacIty requIres an agency-wIde eIIort. To thIs
end, the Emergency Response Team deveIoped the SHARP (StrategIc HumanItarIan Response
PIan). The SHARP Is a strategIc actIon pIan Ior the entIre agency that provIdes the road map
and sIgn posts to achIeve hIgh quaIIty CRS humanItarIan response, contrIbutIng to the
agency's vIsIonary dIrectIon Ior becomIng a more agIIe and InnovatIve organIzatIon.
UtIIIzIng a systems approach, It IdentIIIes strategIc objectIves, responsIbIe partIes and
measurabIe benchmarks, thus engagIng aII IeveIs oI IeadershIp throughout the agency In a
process desIgned to sustaIn proIound posItIve change In how CRS operates In humanItarIan
crIses. Updates on progress made towards the SHARP objectIves are reported on a quarterIy
basIs to the ExecutIve Management Team. The SHARP can be vIewed on the CRS Intranet
(Overseas OperatIons>PQSD>Emergency Response).
2.2.2 The 8Ig PIcture: The ReIIeI-DeveIopment LInk
CRS works In both reIIeI and deveIopment settIngs. ReIIeI and deveIopment are not easIIy
separated categorIes; there Is endIess InterpIay between the two over tIme. RIsks to
IIveIIhoods exIst at aII IeveIs, natIonaI to communIty to IndIvIduaI househoId. A weaIthy
country or a weaIthy IamIIy can be devastated by a dIsaster as can a poorer country or a
poor IamIIy. The IInk between reIIeI and deveIopment IIes In understandIng the nature oI
rIsk and workIng to reduce vuInerabIIIty to rIsk whIIe supportIng IocaI capacItIes to cope and
be resIIIent to shocks over tIme. 8y understandIng the vuInerabIIIty context oI the
communItIes we serve, we are better pIaced to accurateIy IdentIIy actIvItIes that, In non-
emergency tImes, wIII contrIbute to reducIng rIsks to IIveIIhood systems and, In emergency
tImes, wIII assIst to understand the root causes oI the vuInerabIIIty oI the dIsaster-aIIected
popuIatIon whIch, In turn, wIII contrIbute to a deveIopmentaI reIIeI approach. One way to
ensure that aII CRS programs, be they In reIIeI or deveIopment settIngs, consIder concepts
oI vuInerabIIIty and rIsk Is by vIewIng aII oI our actIvItIes through a rIsk reductIon Iens.
FIgure 2.3 The RIsk ReductIon Lens
8y InsIstIng that our program managers vIew aII oI theIr actIvItIes through a rIsk reductIon
Iens, we change IundamentaIIy the way we pIan. ConsIderIng rIsks to the popuIatIon we
serve as a crItIcaI aspect oI program desIgn Ieads to a recognItIon that rIsks exIst Ior aII
peopIe and that both reIIeI and deveIopment InterventIons oI CRS shouId contrIbute to
reducIng vuInerabIIIty and buIIdIng resIIIence to rIsk over tIme.
2.2.3 ConceptuaI Frameworks Ior EmergencIes
ConceptuaI Irameworks are anaIytIcaI tooIs that heIp to expIaIn the cause-eIIect
reIatIonshIps among compIex varIabIes. They assIst us to understand the IIveIIhood systems
oI the poor whIch In turn enabIes us to understand the root causes oI probIems when they
arIse.
The CRS strategy map hIghIIghts as an agency prIorIty the objectIve to "buIId IocaI capacIty
to Improve IntegraI human deveIopment and peopIe's envIronments." At the tIme oI
DIsaster
Recovery
DIsaster
MItIgatIon
DIsaster
MItIgatIon
DIsaster
Response
DIsaster
Preparedness
RFC WorId DIsasters Report, 2002
DeveIopment
pubIIcatIon oI thIs handbook, CRS Is In the process oI deveIopIng a hoIIstIc conceptuaI
Iramework to assIst us to understand the key eIements and InterreIatIonshIps that
contrIbute to Improved IntegraI human deveIopment. The deveIopment communIty as a
whoIe has been movIng towards the use oI IIveIIhood securIty Irameworks to provIde a
hoIIstIc understandIng oI the many aspects oI deveIopment Ior househoIds and
communItIes.
To IIIustrate such a conceptuaI Iramework, we take the exampIe oI the sustaInabIe
IIveIIhoods Iramework deveIoped by DFD (UK Department Ior nternatIonaI DeveIopment) as
descrIbed In LearnIng about LIveIIhoods: nsIghts Irom Southern AIrIca (2002). The
deIInItIon oI IIveIIhood used by DFD Is:
"A IIveIIhood comprIses the capabIIItIes, assets (IncIudIng both materIaI and socIaI
resources) and actIvItIes requIred Ior a means oI IIvIng. A IIveIIhood Is sustaInabIe when It
can cope wIth and recover Irom shocks and stresses and maIntaIn and enhance Its
capabIIItIes and assets both now and In the Iuture, whIIst not undermInIng the naturaI
resource base."
The DFD Iramework sets out to conceptuaIIze:
How peopIe operate wIthIn a vuInerabIIIty context that Is shaped by dIIIerent Iactors -
shIItIng seasonaI constraInts (and opportunItIes), economIc shocks and Ionger-term
trends.
How they draw on dIIIerent types oI IIveIIhood assets or capItaI In dIIIerent combInatIons
whIch are InIIuenced by:
The vuInerabIIIty context
A range oI InstItutIons and processes
How they use theIr asset base to deveIop a range oI IIveIIhood strategIes to achIeve
desIred IIveIIhood outcomes
FIgure 2.4 DFD SustaInabIe LIveIIhood Framework
The arrows In the Iramework try to show how the dIIIerent eIements InterreIate and
InIIuence one another. The Iramework Is InIormed by certaIn core concepts:
t Is peopIe-centered In the sense that It advocates that:
DeveIopment poIIcy and a practIce shouId IIow Irom an understandIng oI the poor and
theIr IIveIIhoods strategIes
The poor shouId dIrectIy contrIbute to determInIng deveIopment prIorItIes and be abIe to
InIIuence the InstItutIons and process that Impact on theIr IIves
t Is hoIIstIc In that the Iramework encourages anaIysIs that cuts across dIIIerent sectors
and recognIzes a range oI actors and InIIuences as weII as muItIpIe IIveIIhood strategIes
and outcomes.
t Is dynamIc In that It trIes to understand change over tIme and the compIex InterpIay
between dIIIerent Iactors
t starts Irom an anaIysIs oI strengths rather than needs and probIems
t Iooks Ior and makes the IInkages between "mIcro" and "macro" IeveIs
t Is concerned wIth sustaInabIIIty In aII Its dImensIons - socIaI, economIc, InstItutIonaI,
and ecoIogIcaI
Why Is a conceptuaI Iramework Important Ior CRS emergency programsZ
For emergency project desIgn and ImpIementatIon, conceptuaI Irameworks are crucIaI Ior
anaIyzIng the core probIem(s) and ImmedIate and underIyIng causes, and Ior deveIopIng
approprIate programmIng responses to meet the ImmedIate needs wIth the Iong-term
perspectIve In mInd. WIthout a cIear and concIse conceptuaI Iramework, the country
program team rIsks coIIectIng InIormatIon In an emergency sItuatIon wIthout a cIear tooI Ior
anaIyzIng It. At best, the team rIsks deveIopIng a mIspIaced InterventIon that may
correspond IIttIe to the needs oI the popuIatIon and that wastes the resources oI the donor
and the communIty. At worst, the InterventIon may actuaIIy have a negatIve eIIect on
popuIatIons as It undermInes tradItIonaI practIces or causes IocaI communItIes to Invest
theIr scarce resources In actIvItIes that are not vIabIe. ConverseIy, the proper use oI a
conceptuaI Iramework wIII ensure that a thorough anaIysIs Is conducted and that
InterreIatIonshIps between key varIabIes are IdentIIIed. ThIs wIII heIp to IdentIIy the most
approprIate InterventIons to address the probIem, gettIng at root causes whenever possIbIe
to contrIbute to Iong term soIutIons.
SavIng LIves, SupportIng LIveIIhoods
As stated In sectIon 1, an emergency Is deIIned as "An extraordInary sItuatIon, present or
ImmInent, In whIch there are serIous and ImmedIate threats to human IIIe, dIgnIty and
IIveIIhoods due to naturaI or human-made dIsasters." The overrIdIng concern In emergency
sItuatIons Is to save IIves, whIIe at the same tIme to support IIveIIhoods. SImpIy stated, the
ImmedIate goaI In an emergency sItuatIon Is to ensure that aIIected popuIatIons are abIe to
IIve wIth dIgnIty, wIthout compromIsIng theIr Iuture IIveIIhoods.
ThIs concept Is not unIque to emergency sItuatIons, but Is more acute as the threats to IIIe
are ImmedIate. n addItIon, the concepts oI savIng IIves, protectIng human dIgnIty and
supportIng IIveIIhoods are centraI to CRS' mIssIon and vIsIon. CRS' commItment to justIce
caIIs upon aII members oI the human IamIIy to engage In "rIght reIatIonshIps" that protect
and preserve human dIgnIty. n order to protect human dIgnIty, househoIds need to have
access to basIc human needs (Iood, water, sheIter, heaIth, Income) and need to be saIe (I.e.,
personaI securIty); consequentIy, they engage In a varIety oI mechanIsms to ensure theIr
survIvaI. Emergency sItuatIons dIrectIy threaten thIs survIvaI. n emergency sItuatIons, the
Iack oI basIc needs Is oIten the greatest threat to IIIe, In addItIon to personaI InsecurIty. At
the same tIme, CRS' commItment to justIce engages us to dIg underneath the surIace oI
ImmedIate needs to IdentIIy the underIyIng causes oI InjustIce. A conceptuaI Iramework
such as the IIveIIhoods Iramework dIscussed above provIdes cIues as to the IInkages
between the mIcro- and macro-IeveIs, between the poIIcIes, InstItutIons and processes that
aIIect IndIvIduaI househoIds' IIveIIhood assets and IIveIIhood strategIes.
What Is Food SecurItyZ DeIInItIon and Components oI the Framework
UntII CRS deveIops Its own hoIIstIc conceptuaI Iramework to deIIne Integrated human
deveIopment, It Is heIpIuI In many sItuatIons to utIIIze a Iood securIty Iramework to anaIyze
probIems. WhIIe the IIveIIhood securIty Iramework descrIbed above heIps us to understand
the bIgger pIcture, a Iood securIty Iramework can assIst us to anaIyze basIc needs In
emergency sItuatIons. n broad terms, Iood securIty Is deIIned that "aII peopIe, at aII tImes,
have the necessary physIcaI and economIc access to suIIIcIent Iood and water to meet theIr
dIetary needs necessary Ior a productIve and heaIthy IIIe today, and the good heaIth to use
that Iood properIy, wIthout sacrIIIcIng Iuture Iood securIty." n other words, the Iood-
Insecure IndIvIduaI or househoId does not consume suIIIcIent quantIty (or quaIIty) Iood or
water to survIve; or, II there Is suIIIcIent Iood, the IndIvIduaI does not have the good heaIth
to use It properIy.
Most agencIes, IncIudIng CRS, recognIze that achIevIng Iood securIty requIres that suIIIcIent
quantItIes oI Iood are avaIIabIe; that househoIds have physIcaI and economIc access to It,
and that IndIvIduaIs are abIe to use It properIy. n order to achIeve Iood securIty, the
househoId must use a varIety oI mechanIsms to acquIre Iood and to ensure the good heaIth
to use It properIy. Thus, Iood securIty not onIy requIres Iood productIon, but aIso Income,
heaIth, water, educatIon, sheIter, peace and access to basIc servIces. ThIs Is the
combInatIon oI mechanIsms that the househoId uses to acquIre Iood (purchase, productIon,
trade, gIIts) and to use It properIy.
n terms oI avaIIabIIIty oI Iood, thIs Is InIIuenced by Important underIyIng determInants,
such as the Iand (IncIudIng sIze oI pIots, IertIIIty oI the soII and access to Iand); Iabor; and
Iarm Inputs (tractors, hoes, etc). These, In turn, are InIIuenced by Iactors such as a Iarmer's
heaIth status (whIch aIIects productIvIty), Income and access to credIt (whIch aIIects the
abIIIty to purchase Inputs), and the educatIon IeveIs oI Iarmers (whIch aIIects productIvIty).
And IInaIIy, these Iactors are InIIuenced by basIc socIaI, poIItIcaI and naturaI Iactors,
IncIudIng access to markets, peace and stabIIIty, government poIIcIes and the naturaI
envIronment.
I househoIds are unabIe to produce suIIIcIent Iood to meet theIr needs, househoIds wIII
need to purchase Iood - In other words, access. Access to Iood depends upon a
househoId's or IndIvIduaI's IeveI oI Income, the IocaI Iood prIces, and the presence oI Ioods
on the market. Access to Iood Is ImmedIateIy aIIected by an IndIvIduaI's Income-generatIng
actIvItIes and saIarIes (or prIces) Ior such actIvItIes. These are InIIuenced by Iactors such as
Iand, Iabor and access to credIt. These, In turn, are InIIuenced by determInants such as the
heaIth oI Iabor, access to credIt and educatIon IeveIs. And IInaIIy, these are InIIuenced by
basIc determInants, IncIudIng access to markets, peace and stabIIIty, government poIIcIes,
the naturaI envIronment, Income, roads, heaIth practIces, and access to potabIe water.
These determInants are InIIuenced by a host oI poIItIcaI, economIc and socIaI Iactors,
IncIudIng access to resources, war and government poIIcIes.
mportantIy, even those who mIght have suIIIcIent avaIIabIIIty oI and access to Iood need
proper utIIIzatIon (or heaIth). UtIIIzatIon can be InhIbIted by dIseases that eIther prohIbIt
absorptIon (dIarrhea) or aIIect appetIte (such as maIarIa, HV]ADS and tubercuIosIs). The
utIIIzatIon oI Iood (or heaIth) Is ImmedIateIy aIIected by chIId care practIces, the heaIth
envIronment and access to basIc heaIth servIces.
How can the Food SecurIty Framework be Used In Emergency SItuatIonsZ
TooIs Ior AnaIysIs
The Iood securIty Iramework can be used durIng the ImmedIate stages to guIde the InItIaI
assessment and as an anaIysIs tooI. t Is durIng thIs stage that CRS and partner staII need to
IInd InIormatIon on the ImmedIate threats to IIIe (Iack oI access to basIc needs), to IdentIIy
the causes, and to deveIop responses. At the same tIme, the team aIso needs to ensure a
hoIIstIc (as opposed to a sectoraI) approach, In order to avoId mIssIng a potentIaIIy
Important need.
A Iood securIty Iramework can thereIore be used to answer the IoIIowIng questIons In an
emergency sItuatIon.
s access to basIc needs (I.e, suIIIcIent Iood, water, heaIth care, sheIter) a probIem
Ior the aIIected popuIatIonsZ
I so, what Is the severIty oI the probIemZ
What are the ImmedIate and underIyIng causes oI the probIemZ
OI these, what are the most Important causes, or key Ieverage poIntsZ
Are IndIvIduaIs engaged In actIvItIes that mIght compromIse theIr Iuture Iood
securItyZ
8ased upon thIs anaIysIs, the emergency response team on the ground can hIghIIght the
most ImmedIate concerns and desIgn (wIth communItIes or partners) short-term
InterventIons to meet the aIIected popuIatIons' needs whIIe consIderIng Ionger-term
InterventIons that address underIyIng and basIc causes.
FoIIowIng the InItIaI assessment and anaIysIs, the Iood securIty assessment can be IoIIowed
by more detaIIed sectoraI assessments - such as agrIcuIture, heaIth, water]sanItatIon or
sheIter - II these were IdentIIIed as prIorItIes In the InItIaI assessment. n addItIon, the
resuIts oI the Iood securIty anaIysIs can aIso be used to IdentIIy and address structuraI and
underIyIng causes oI the emergency - such as conIIIct, government poIIcIes or
envIronmentaI Iactors - that shouId be taken Into consIderatIon durIng rehabIIItatIon
actIvItIes.
What Is IamIneZ
FamIne Is typIcaIIy assocIated wIth a sharp deterIoratIon In economIc condItIons, extreme socIaI
dIsruptIon, and some degree oI excess mortaIIty (Webb and RIchardson, In RIeIy). FamIne Is
dIstInguIshed by "epIsodIc mass starvatIon" (DownIng). [FamIne Is thus deIIned] as "an extreme
coIIapse In IocaI avaIIabIIIty and access to Iood that causes a wIdespread rIse In mortaIIty Irom
outrIght starvatIon or hunger reIated IIInesses." [ThIs understandIng Is] shaped by the IoIIowIng
IamIne concepts (FIeId):
FamIne Is a process, a sIow-onset phenomenon, the cumuIatIve resuIt oI weakenIng access to
Iood. t Is a process oI stress and destItutIon that can resuIt In a IamIne outcome.
FamIne condItIons are reached when destItutIon (the InvoIuntary dIsposaI oI productIve assets)
occurs, oIten cuImInatIng In dIstress mIgratIon.
FamIne Is an outcome that accompanIes destItutIon or IoIIows destItutIon. t Is the IInaI, but
not InevItabIe, stage oI the IamIne process In whIch peopIe starve, suIIer dIsease, and dIe In
unusuaIIy Iarge numbers.
These IamIne concepts have severaI sIgnIIIcant consequences. FIrst, the potentIaI Ior IamIne and
the IncIdence oI past IamInes can be measured, studIed, and dIagnosed. Second, programs and
poIIcIes can be deveIoped to reduce the Irequency oI IamInes (preventIon) and reduce the Impact oI
IamIne condItIons (mItIgatIon) when they occur. ThIrd, earIy warnIngs can oIten be Issued Iar In
advance so that responses can be made In tIme.
(FEWS-FamIne EarIy WarnIng System, www.Iews.net)
8ox 2.1
2.2.4 The Project CycIe
As In a deveIopment envIronment, emergency projects IoIIow severaI steps that over tIme
compIete a project cycIe. 8eIow Is an IIIustratIon oI the cIassIc project cycIe.
8ecause oI rapIdIy oI changIng events In emergencIes, programs may need to shIIt back and
Iorth aIong the project cycIe. t may be more heIpIuI to thInk oI the project cycIe as a spIraI
In whIch crIsIs events may occur throughout the IIIe oI a project (or an entIre emergency
response program Ior that matter). To ensure that actIvItIes are meetIng prIorIty needs It Is
essentIaI to reguIarIy reassess and adjust projects as necessary. ThIs requIres cIose
monItorIng and more IIexIbIIIty than In most deveIopment sItuatIons. The IIIustratIon on the
IoIIowIng page depIcts an emergency project cycIe In whIch the project experIences perIods
oI reguIar ImpIementatIon punctuated by crIses that necessItate a re-assessment oI needs
and possIbIy adjustment oI project actIvItIes.
FIgure 2.5 The Project CycIe
ProbIem
dentIIIcatIon
Project
DesIgn
Project
mpIementatIon
MonItorIng &
EvaIuatIon
PartIcuIar aspects oI an emergency, whether It Is In an acute InItIaI phase or In a chronIc yet
IaIrIy stabIe phase, provIde cues to what kInd oI programmIng prIorItIes and methodoIogIes
are most approprIate. SImIIar to deveIopment projects, each step In the cycIe buIIds upon
the next, hence the Importance oI the pre-emergency phase (preparedness) In the abIIIty to
respond quIckIy and eIIectIveIy to an emergency event, conductIng and documentIng
thorough needs assessments, and estabIIshIng strong systems Irom the very begInnIng.
FIgure 2.6 Emergency Project CycIe
Readjust
program In
necessary
ComprehensIve
SectoraI
Assessments
SItuatIonaI
& nItIaI
Assessments
CrIsIs
CrIsIs
CrIsIs
SItuatIonaI &
nItIaI
Assessments
Preparedness
AnaIysIs &
PIannIng
mpIement &
MonItor
AnaIysIs &
PIannIng mpIement &
MonItor
mpIement &
MonItor
SItuatIonaI
& nItIaI
Assessments AnaIysIs &
PIannIng
ComprehensIve
SectoraI
Assessments
mpIement &
MonItor
Sphere Handbook AnaIysIs Standards
TakIng the sector oI Iood aId and IogIstIcs Irom the
Sphere Handbook, there are three anaIysIs standards
we shouId seek to achIeve.
AnaIysIs Standard 1: nItIaI Assessment
8eIore any program decIsIons are made, there Is a
demonstrated understandIng oI the basIc condItIons
that create rIsk oI Iood InsecurIty and the need Ior Iood
aId.
AnaIysIs standard 2: MonItorIng and EvaIuatIon
The perIormance and eIIectIveness oI the Iood aId
program and changes In the context are monItored and
evaIuated.
AnaIysIs standard 3: PartIcIpatIon
The dIsaster-aIIected popuIatIon has the opportunIty to
partIcIpate In the desIgn and ImpIementatIon oI the
assIstance program.
Key IndIcators (IncIudIng the essentIaI eIements oI an
assessment) and guIdance notes on each oI these
standards can be Iound In the Sphere Handbook.
8ox 2.2
2.2.5 Project DesIgn
2.2.5.1 Assessment
Assessment Is the IoundatIon oI
pIannIng. t IncIudes data coIIectIon
and anaIysIs and Is an on-goIng
process. DIIIerent assessment
methodoIogIes and tooIs are
approprIate dependIng on the phase
oI an emergency and the prIorIty
goaIs. For exampIe, there Is a
dIIIerence between background
InIormatIon coIIected prIor to an
emergency, the sItuatIonaI and InItIaI
assessments In the IIrst Iew days
aIter a dIsaster event, and the use oI
credIbIe sampIIng methodoIogIes In
a survey conducted a Iew weeks Into
an emergency. PIannIng In advance
to the extent possIbIe can save tIme.
FIexIbIIIty and on-goIng
reassessment, however, Is
partIcuIarIy Important In sItuatIons
oI IIux.
As IIIustrated In FIgure 2.6, aIter a
dIsaster event has occurred It Is
Important to conduct a sItuatIonaI
assessment In order to have enough InIormatIon to make key decIsIons regardIng the nature
oI the emergency such as whether It Is IIIe threatenIng or wIII requIre externaI assIstance.
The resuIts oI a sItuatIonaI assessment determIne whether more InIormatIon Is needed and
an InItIaI needs assessment shouId be conducted. At thIs poInt the most Important
InIormatIon needed Is demographIc (who, how many In totaI, how many women and
chIIdren) and descrIptIve (what has happened, are popuIatIons movIng, what are theIr basIc
IIIe savIng needs, what Is the securIty sItuatIon, etc.). As the InItIaI response Is ImpIemented
and begIns to IunctIon more smoothIy, It Is Important to contInue to reassess the sItuatIon
and make adjustments In programmIng as necessary. Furthermore, as a sItuatIon stabIIIzes
and more InIormatIon can be coIIected, It Is Important to conduct comprehensIve sectoraI
assessments to provIde InIormatIon on possIbIe project desIgn adjustments that wIII
contrIbute not onIy to savIng IIves, but whenever possIbIe, support IIveIIhoods and a return
to stabIIIty.
A good assessment wIII contrIbute to sound anaIysIs and subsequentIy to accurate probIem
IdentIIIcatIon. WhIIe there Is a need Ior speed In acute dIsasters, thIs must be baIanced wIth
a thorough assessment and careIuI anaIysIs to ensure that the probIem and Its root causes
have been accurateIy IdentIIIed and a project has been desIgned to eIIectIveIy address both
short and Iong term needs. When thIs process Is not conducted correctIy there Is a
sIgnIIIcant rIsk oI mIsIdentIIyIng needs, capacItIes and vuInerabIIItIes oI the dIsaster-
aIIected popuIatIon and potentIaIIy doIng more harm than good. Program quaIIty Ior CRS
requIres quaIIty assessment and anaIysIs.
The CRS Project ProposaI CuIdance (PPC) provIdes more detaIIed InIormatIon on probIem
IdentIIIcatIon (see the reIerence pages beIow). The Sphere Project: HumanItarIan Charter
and MInImum Standards In DIsaster Response provIdes InIormatIon on key eIements oI
assessment and anaIysIs Ior IIve sectors (Iood aId, nutrItIon, heaIth, sheIter and sIte
pIannIng, and water]sanItatIon). An exampIe Is presented In 8ox 2.2. n addItIon, CRS wIII
pubIIsh an Emergency Assessment ManuaI In earIy 2003 to provIde more guIdance.
2.2.5.2 CoaIs, ObjectIves, ndIcators
The IormuIatIon oI the goaI provIdes the Iramework Ior the pIan. CoaIs are broad
descrIptIons oI what Is to be accompIIshed. ObjectIves are precIse statements IndIcatIng
what Is needed to achIeve the goaIs, and are stated In terms oI measurabIe IndIcators. An
IndIcator Is a measurabIe varIabIe about somethIng (data) that can be coIIected to assess a
sItuatIon. The best IndIcators are those whIch are most predIctIve oI a sItuatIon or Iactors
known to InIIuence a sItuatIon (see the tabIe on the IoIIowIng page Ior exampIes). For
addItIonaI InIormatIon on goaIs, objectIves and IndIcators see the reIerence IIsted beIow Ior
the CRS Project ProposaI CuIdance.
ObjectIves and theIr assocIated IndIcators must demonstrate knowIedge oI exIstIng
InternatIonaIIy accepted technIcaI standards Ior dIsaster reIIeI. When standards cannot be
met, due to resource IImItatIons or Iack oI access to the aIIected popuIatIon Ior exampIe,
thIs shouId be stated expIIcItIy eIther In the project text and]or In subsequent monItorIng
reports. 8ox 2.3 on the IoIIowIng page IIIustrates an exampIe oI a standard and key
IndIcators Ior Iood aId requIrements Iound In the Sphere Project handbook.
As a ruIe, emergency programs shouId evoIve Irom ImmedIate to Ionger-term objectIves.
PrIor to an emergency event, especIaIIy those sIow-onset events that can be reIatIveIy easIIy
predIcted such as drought, programs shouId InItIate preparedness actIvItIes. PreventIon oI
harm and preservatIon oI IocaI capacItIes shouId take precedence In aII but IIIe threatenIng
sItuatIons In whIch these have IaIIed. n thIs case, respondIng to acute needs oI the
popuIatIon In generaI, and then to acute needs oI IndIvIduaIs, takes precedence. ActIvItIes
that promote deveIopment shouId be Integrated Into programs as the acute phase begIns to
stabIIIze. n ongoIng deveIopment programs, actIvItIes to promote preparedness and
mItIgatIon shouId be consIdered Ior the most IIkeIy dIsaster scenarIos In a gIven context.
Food AId RequIrements Standard: Key ndIcators:
The Iood basket and ratIons are
desIgned to brIdge the gap
between the aIIected popuIatIon's
requIrements and theIr own Iood
resources
RequIrements are based on the IoIIowIng WHO InItIaI pIannIng
estImates:
2,100 kcaIs per person per day
10-12Z oI totaI energy Is provIded by proteIn
17Z oI totaI energy Is provIded Irom Iat
Adequate mIcronutrIent Intake through Iresh or IortIIIed Ioods
EstImates oI peopIe's Iood and Income sources IncIude
consIderatIon oI:
Market and Income opportunItIes.
ForagIng and wIId Iood potentIaI.
AgrIcuIturaI seasons and access to productIve assets.
Sources oI Income and copIng strategIes.
RatIon scaIes IncIude consIderatIon oI:
CeneraI nutrItIonaI requIrements.
SpecIIIc needs oI vuInerabIe groups.
Access to aIternatIve sources oI Iood and]or Income.
CommodIty seIectIon IncIudes consIderatIon oI:
LocaI avaIIabIIIty and market Impact.
LocaI acceptabIIIty and preparatIon.
FItness and nutrItIonaI composItIon.
FueI requIrements Ior cookIng.
Other nutrItIonaI Iactors.
The Sphere Handbook, 2000
8ox 2.3 Food AId Standard and Key ndIcators
2.2.5.3 TargetIng and SeIectIon CrIterIa
t Is essentIaI to estabIIsh seIectIon crIterIa to properIy IdentIIy groups at rIsk. CrIterIa may
be based on need or on geographIc or sectoraI consIderatIons. n addItIon, a decIsIon Ior
CRS to Intervene depends on whether there Is a partIcuIar vaIue-added Ior a CRS
InterventIon to assIst thIs group or II there Is vaIue-added Ior a CRS partner to get InvoIved.
ExampIes oI "vaIue-added" couId IncIude CRS and]or partner expertIse In the needed sector
or CRS and]or partner responsIbIIIty to respond to needs In the aIIected geographIc area.
There are severaI ways to deIIne seIectIon crIterIa and IdentIIy the target popuIatIon. These
shouId be deveIoped wIth a deep understandIng oI the IocaI context, socIaI reIatIons,
understandIng oI underIyIng causes (justIce anaIysIs), and a cIear understandIng oI our
objectIves - what are we tryIng to promote (better hygIene practIces ) or prevent
(maInutrItIon). t Is very Important to ensure that there Is cIear understandIng, II not
agreement, on the part oI the IocaI partner, donors, popuIatIon, IocaI oIIIcIaIs, etc. regardIng
who the project wIII target and the seIectIon crIterIa. AssumptIons shouId not be made that
IocaI Ieaders wIII target those consIdered most vuInerabIe by outsIders. ComIng to an
agreement on targetIng wIth aII concerned may be tIme consumIng up Iront, but In the Iong
run It wIII pay oII by ensurIng the most vuInerabIe are assIsted.
t Is Important to ask the questIons "Who Is at rIsk and whyZ" and "Who Is vuInerabIe to
whatZ" The Iack oI a cIear anaIysIs oI who Is at rIsk and why Is one oI the maIn reasons Ior
poorIy targeted projects. The probIem Is oIten not a Iack oI InIormatIon; rather It Is the
Inadequacy oI the subsequent anaIysIs because oI a Iack oI conceptuaI thInkIng. For
exampIe, It Is Important at the very earIIest oI stages oI an emergency response to keep In
mInd the savIng IIves-supportIng IIveIIhoods-strengthenIng cIvII socIety approach as an
overaII operatIonaI Iramework.
When the questIon oI what we are tryIng to achIeve Is answered (s It a decrease In
maInutrItIon ratesZ ProtectIon oI IIveIIhood assetsZ), we can then Iook at the kInd oI
targetIng needed. For Iood aId, Ior exampIe, we generaIIy Iook at targetIng usIng nutrItIonaI
status or generaI Iood deIIcIts In a gIven area. Once It Is cIear what our objectIves are,
targetIng can then be narrowed Iurther to partIcuIar groups or househoIds or IndIvIduaIs
wIthIn those groups. For exampIe, the targeted popuIatIon couId be IamIIIes hostIng
reIugees or InternaIIy dIspIaced persons or the eIderIy wIthIn a partIcuIar communIty. n
some sItuatIons, IocaI communIty organIzatIons representIng the aIIected popuIatIon can be
gIven the resources and they seIect who receIves them.
Another strategy commonIy known as generaI dIstrIbutIon or bIanket IeedIng targets aII
househoIds In a geographIc area or targets an entIre popuIatIon In a reIugee camp.
TargetIng can aIso change over tIme dependIng on the type oI emergency and the stage It Is
In. For exampIe, even reIugee popuIatIons can over tIme deveIop new ways oI accessIng
Income or Iood thus decreasIng theIr reIIance on externaI Iood sources. 8ox 2.4 provIdes
some categorIes Ior deIInIng vuInerabIIIty and the assocIated targetIng crIterIa.
DependIng on the sItuatIon, targetIng may be necessary wIthIn vuInerabIe groups. For
exampIe, II an assessment determInes that a generaI Iood ratIon Is most approprIate,
Iurther InvestIgatIon may IndIcate that wIthIn the generaI targeted group, there are
varIatIons that requIre Iurther targetIng. I there Is a wIde dIscrepancy among the sIzes oI
IamIIIes, It may make sense to dIstrIbute varIous ratIon sIzes accordIng to IamIIy sIze. Or, II
CrIterIa Ior targetIng dIIIerent types oI vuInerabIIIty
8eneIIcIarIes are IdentIIIed accordIng to certaIn crIterIa. These crIterIa shouId reIate to the nature oI
vuInerabIIIty that Is beIng addressed by the InterventIon. The crIterIa may be a categorIzatIon
accordIng to status: reIugee]non-reIugee; dIspIaced]non-dIspIaced; a cut-oII on a contInuous scaIe
oI measurement (nutrItIonaI status, degree oI Iood deIIcIt); or a combInatIon oI crIterIa (socIaIIy
vuInerabIe groups wIthIn a reIugee popuIatIon).
VuInerabIIIty TargetIng CrIterIa
PhysIoIogIcaI NutrItIonaI (anthropometrIc) status to IdentIIy maInourIshed chIIdren and even
sometImes aduIts. Pregnant and IactatIng women, the eIderIy, the sIck and
convaIescent.
SocIaI The eIderIy, wIdows, women-headed househoIds, orphans, unaccompanIed mInors, the
dIsabIed, househoIds who have been separated Irom theIr communItIes and normaI
representatIves.
EconomIc Depends on the underIyIng cause oI Iood InsecurIty, but may IncIude the drought
aIIected (Iarmers, pastoraIIsts, IandIess Iaborers, etc. who are aIIected by crop IaIIure,
IIvestock Iosses, unIavorabIe terms oI trade, unempIoyment, etc.) and the dIspIaced
who have been separated Irom theIr economIc means oI survIvaI. AIternatIveIy, IeveIs
oI Iood deIIcIt may be caIcuIated and communItIes prIorItIzed Ior dIstrIbutIon
accordIngIy. EconomIc shock.
PoIItIcaI ReIugees and those communItIes exposed to vIoIence, oppressIon, conIIIct and war.
WIthIn communItIes the questIon oI poIItIcaI vuInerabIIIty Is much harder to assess.
]aspars, S and Young, H, 1995
8ox 2.4
there are partIcuIarIy hIgh IeveIs oI maInutrItIon amongst chIIdren under two years oI age, a
suppIementary IeedIng program may be approprIate.
A gender anaIysIs that IdentIIIes power and status reIatIonshIps, coupIed wIth the project's
objectIves, wIII contrIbute to IdentIIIcatIon oI target groups and seIectIon crIterIa. t wIII aIso
provIde key InIormatIon regardIng ImpIementatIon strategIes. For exampIe, a Iood aId
program Ior dIspIaced persons may target pregnant and IactatIng women wIth nutrIent-rIch
Iood suppIements. A thorough gender anaIysIs wIII aIso provIde InIormatIon to heIp
determIne the most approprIate dIstrIbutIon IocatIon and scheduIe. DIstrIbutIon systems
shouId seek to mInImIze the burden that Is oIten pIaced on women to coIIect commodItIes
In addItIon to theIr other househoId responsIbIIItIes.
2.2.5.4 mpIementatIon
Once the goaI, objectIves, targetIng, and IndIcators have been IdentIIIed, the pIan Ior
ImpIementatIon shouId be deveIoped. AII emergency project proposaIs shouId IncIude a
detaIIed ImpIementatIon scheduIe or caIendar oI actIvItIes. ThIs Is a key aspect oI project
desIgn that must not be overIooked. n compIetIng an ImpIementatIon scheduIe many smaII
but crItIcaI detaIIs that may have been prevIousIy overIooked become apparent. Moreover,
compIetIon oI ImpIementatIon scheduIes heIps to ensure the IogIcaI sequencIng oI actIvItIes.
2.2.5.5 MonItorIng and EvaIuatIon
FInaIIy, monItorIng and evaIuatIon (M&E) shouId be consIdered throughout the program
desIgn phase as weII as the IIIe oI the program. WeII pIanned and ImpIemented M&E Is
crItIcaI to ensure that program actIvItIes remaIn approprIate and eIIectIve durIng the
program ImpIementatIon.
EvaIuatIons, whether reaI-tIme, mId-term, or IInaI, provIde managers and program
beneIIcIarIes wIth an understandIng oI whether the program has achIeved Its objectIves.
One source oI addItIonaI InIormatIon on M&E In emergencIes Is ALNAP, an actIve IearnIng
network based In London. ALNAP provIdes exceIIent and detaIIed InIormatIon on the
specIIIcs oI monItorIng and evaIuatIon Ior humanItarIan actIon. These materIaIs can be
Iound on theIr websIte (www.aInap.org) or on the CRS Intranet (Overseas
OperatIons>PQSD>Emergency Response>Resources).
The purpose oI monItorIng Is to:
determIne whether the sItuatIon Is ImprovIng]deterIoratIng.
determIne whether the actIon Is eIIectIve and what adjustments are needed.
n crIsIs or very unstabIe contexts, re-estabIIshIng the baseIIne pIcture Is IrequentIy requIred (e.g., an
area]a group oI peopIe become newIy accessIbIe, a sItuatIon changed dramatIcaIIy, InIormatIon Is
requIred In greater depth) to the poInt that assessments begIn to merge wIth monItorIng actIvIty.
The purpose oI evaIuatIon Is to:
assess the Iactors aIIectIng the IeveI and dIstrIbutIon oI beneIIts produced
determIne whether programmes are reIevant to a changed context
recheck reIevance oI goaIs and strategy and assess resuIts
check on unIntended Impacts oI the project (do no harm)
The dIstInctIon between the monItorIng process and evaIuatIon bIurs In a crIsIs]unstabIe context.
CIven the rapId changes, It Is necessary to "stop" more oIten and reappraIse programmes In terms oI
changes In context, eIIIcIency and eIIectIveness, the reIevance oI goaIs]strategy, unIntended Impacts
("do no harm" prIncIpIe).
UNCEF, March 2001
AdditionaI Resources
1. CRS Project ProposaI CuIdance Project DesIgn
Cender AnaIysIs
mpIementatIon ScheduIe
ProbIem dentIIIcatIon and AnaIysIs
ProbIem Trees
2. Sphere Project Handbook
3. ReIugee HeaIth: An Approach to Emergency SItuatIons, MedecIns Sans FrontIeres
4. UNHCR]WFP CuIdeIInes Ior EstImatIng Food and NutrItIonaI Needs In EmergencIes
5. UNHCR]WFP CuIdeIInes Ior SeIectIve FeedIng Programmes In Emergency SItuatIons
6. UNHCR Framework Ior PeopIe OrIented PIannIng
7. WHO SeIected EssentIaI MedIcInes Ior EmergencIes
8. CRS PoIIcy on the Procurement, DIstrIbutIon and Use oI MIIk Products and nIant FeedIng
EquIpment In EmergencIes
9. ALNAP TraInIng ModuIes Ior EvaIuatIon oI HumanItarIan ActIon (www.aInap.org)
See 8IbIIography Ior detaIIs.
8ox 2.5
CRS Emergency Projects: FundIng, RevIew,
Headquarters Support 3
n thIs sectIon you wIII IInd InIormatIon on the IoIIowIng topIcs
3.1 FundIng Sources
A descrIptIon oI major IundIng sources Ior emergency
programs
3.2 Project RevIew and FundIng Process
How CRS revIews emergency proposaIs submItted Ior prIvate
CRS IundIng
3.3 Emergency Response WorkIng Croup
A descrIptIon oI how support Is coordInated In CRS headquarters Ior
emergency programs
FundIng Sources 3.1
3.1.1 CRS PrIvate Resources
There are three sources oI prIvate Iunds Ior emergency programs apart Irom those reguIarIy
programmed In AnnuaI Program PIans. t Is crItIcaI that the most restrIcted Iund sources are
the IIrst to be spent down.
RegIonaI Funds
Funds managed by the regIon are avaIIabIe Ior emergency use at the dIscretIon oI the
RegIonaI DIrector. ERT revIew Is not a prerequIsIte Ior appIIcatIon oI regIonaI Iunds Ior
emergency response.
O'NeII Funds
The W. O'NeII FoundatIon, nc. has specIIIed that theIr contrIbutIon to CRS go to the
ImmedIate and dIrect reIIeI oI peopIe aIIected by naturaI dIsaster or compIex emergencIes
Ior the provIsIon oI ImmedIate, IIIe savIng basIc necessItIes Ior Iow-margIn-oI error-
projects through the provIsIon oI Iood, non-Iood Items, medIcaI care and temporary sheIter.
These Iunds may not be used Ior admInIstratIve overhead unIess such costs resuIt In a
substantIaI muItIpIIer eIIect. O'NeII Iunds may not be used Ior research, purchase oI capItaI
equIpment, counseIIng or Iong-range programs.
The Emergency Reserve oI the Overseas OperatIons Reserve
Funds Irom OverOps Reserve are avaIIabIe to Iund an emergency response when: 1)
restrIcted IundIng Is not avaIIabIe at the tIme Iunds are requIred prIor to donatIons comIng
In to FundraIsIng; 2) when regIonaI Iunds are not avaIIabIe to cover project costs; 3) no
other resources are avaIIabIe Ior the response. These Iunds are generaIIy used Ior
supportIng emergency actIvItIes that do not meet O'NeII Fund crIterIa.
n-kInd DonatIons
n-kInd donatIons are oIten the manIIestatIon oI a desIre to support dIsaster-aIIected
popuIatIons wIth goods that are thought to be heIpIuI. UnIortunateIy, In-kInd donatIons do
not aIways eIIectIveIy respond to needs. t Is ImperatIve that country programs respondIng
to dIsasters cIarIIy expIIcItIy whIch In-kInd Items wouId be most useIuI In an emergency
response. t Is aIso very Important that Issues reIated to transport and ImportatIon
requIrements be careIuIIy consIdered Iong beIore Items are coIIected. More detaIIed
guIdance Ior approprIate gIvIng can be Iound on the nterActIon websIte
(www.InteractIon.org).
3.1.2 CarItas nternatIonaIIs (C)
The SecretarIat's OperatIons Desk Is responsIbIe Ior IaunchIng the SpecIaI OperatIonaI
AppeaI (SOA) to the entIre C network. Once an emergency has occurred, and a member
provIdes the IoIIowIng, the OperatIons Desk revIews the InIormatIon and dIssemInates It to
the membershIp at Iarge as part oI an SOA wIth detaIIs on the proposed emergency
response and IundIng needs. n generaI, CRS tends to Ieave submIssIon oI SOAs to IocaI
CarItas organIzatIons. n any case, CRS emergency programs pIanned Ior SOA submIssIon
are subject to the usuaI regIonaI dIrector approvaI and consuItatIon wIth CRS]8aItImore.
nIormatIon needed to Iaunch an SOA
1. 8rIeI descrIptIon oI the cause oI the dIsaster, the approxImate number oI peopIe
aIIected and the type oI damage ] probIem (IncIudIng newspaper artIcIes and photos).
2. Measures taken by the Covernment, other governmentaI and non-governmentaI
organIzatIons (IncIudIng CarItas) to mItIgate the eIIects oI the dIsaster
3. The number and type oI beneIIcIarIes (IncIudIng seIectIon crIterIa) that CarItas can reach
eIIectIveIy, the type oI assIstance to be provIded, and the perIod durIng whIch the
beneIIcIarIes wIII be heIped by CarItas.
4. DescrIptIon oI the procurement, storage, transportatIon and dIstrIbutIon oI assIstance
(the needed personneI, vehIcIes, warehouse space etc. IncIudIng costs assocIated wIth
the dIstrIbutIon)
5. nIormatIon on how you wIII account Ior the resources and report on theIr use.
6. CoordInatIon wIth other co- InvoIved organIzatIons (both Covernment and NC0s) In
order to avoId dupIIcatIon.
7. EvaIuatIon oI the program's eIIectIveness (optIonaI).
8. 8udget - the budget shouId quantIIy aII the needed Inputs (IncIudIng admInIstratIon
reIated to the program whIch can be expressed as a percentage oI the totaI program
vaIue, e.g. 5Z). t shouId be In US doIIars (gIvIng the current exchange rate).
9. 8ank account InIormatIon - where to wIre the members' contrIbutIons.
See Annex Ior more InIormatIon on C's approach to and management structures Ior
emergency programmIng.
NCRA
CRS Is aIIocated a NCRA (NegotIated ndIrect Cost Rate
Agreement) by the USC CeneraI AccountIng OIIIce. The
NCRA Ior CRS Is 27Z. The NCRA rate appIIes to ALL USC-
Iunded projects, IncIudIng the Ambassador's Fund.
n caIcuIatIng these rates, CRS' totaI dIrect cost base has
been modIIIed to excIude donated commodItIes and
assocIated IreIght (IncIudIng ocean, InIand, and InternaI
transport, storage and handIIng IncIudIng packagIng and
reconstItutIon, survey Iees, warehousIng charges, and other
warehousIng Iees), capItaI equIpment In excess oI $5,000,
exchange IIuctuatIons, and mIcro enterprIse Ioans.
Moreover, Ior rates Irom FY1999 goIng Iorward, the 8ase oI
AppIIcatIon aIso excIudes IundraIsIng and pubIIc awareness
expenses (reIated to HQ Department costs). ThereIore,
when caIcuIatIng the IndIrect cost recovery amount to
budget In IederaIIy Iunded awards, Departments and
Country OIIIces must excIude these same costs Irom the
totaI dIrect cost base to arrIve at the eIIectIve NCRA
appIIcatIon base.
More InIormatIon regardIng NCRA can be Iound on the CRS
FInance Intranet sIte or by contactIng the headquarters
FInance Department.
Memo Irom CRS Overseas FInance, November 2, 2001
8ox 3.1
3.1.3 USAD
OIIIce oI ForeIgn DIsaster
AssIstance (OFDA)
The goaI oI OFDA supported
actIvItIes Is to meet the
humanItarIan needs oI the
aIIected popuIatIon, wIth the
aIm oI returnIng the
popuIatIon to seII-suIIIcIency.
OFDA provIdes humanItarIan
assIstance In response to a
decIaratIon oI a IoreIgn
dIsaster made by the U.S
Ambassador or the U.S.
Department oI State. Once an
event or sItuatIon Is
determIned to requIre U.S.
Covernment assIstance,
USAD]OFDA can ImmedIateIy
provIde up to $25,000 to the
U.S. Ambassador]USAD
MIssIon to purchase reIIeI
suppIIes IocaIIy or gIve a
contrIbutIon to a reIIeI
organIzatIon In the aIIected
country (see 3.1.5 oI thIs sectIon). More ImportantIy Ior CRS, OFDA Is one oI the Iargest
donors worIdwIde Ior reIIeI actIvItIes. OFDA provIdes mIIIIons oI doIIars to CRS emergency
projects annuaIIy. n addItIon, OFDA can send Its own reIIeI commodItIes, such as pIastIc
sheetIng, bIankets, tents, and water purIIIcatIon unIts, Irom one oI Its IIve stockpIIes Iocated
In taIy, Cuam, Honduras, and the UnIted States.
n addItIon to dIsaster response, USAD]OFDA's mItIgatIon staII oversees a portIoIIo oI
projects desIgned to reduce the Impact oI dIsasters on vIctIms and economIc assets In
dIsaster-prone countrIes.
CRS country program staII shouId make It a poInt to know the OFDA representatIves In theIr
regIon or country program and at OFDA headquarters In WashIngton, D.C. OFDA ProposaI
CuIdeIInes (updated In 2002) can be Iound on the CRS emergency response Intranet sIte
(Overseas OperatIons>PQSD> Emergency Response>Resources Ior ProposaIs>OFDA) or on
OFDA's websIte (www.usaId.gov]humresponse]oIda]).
Food Ior Peace]Emergency Response (FFP]ER)
USAD's Food Ior Peace Programs (PubIIc Law 480) supports both humanItarIan and
sustaInabIe deveIopment assIstance In the Iorm oI U.S. agrIcuIturaI commodItIes. The P.L.
480 program Is operated joIntIy by the Department oI AgrIcuIture and USAD. TItIe Is
managed by the Food Ior Peace oIIIce. TItIe emergency Iood aId programs are targeted to
vuInerabIe popuIatIons suIIerIng Irom Iood InsecurIty as a resuIt oI naturaI dIsasters, cIvII
conIIIct, or other crIses. nternatIonaI DIsaster AssIstance Iunds are aIso used to Improve
the capacIty oI IoreIgn natIons to prepare and pIan Ior dIsasters, mItIgate theIr eIIect, and
teach preventIon technIques IncreasIng the skIIIs avaIIabIe IocaIIy to respond when dIsaster
strIkes. FFP]ER proposaIs are generaIIy Ior one year or Iess.
FFP]ER ProposaI CuIdance (updated ]anuary 1999) can be Iound at the USAD websIte
(http:]]www.usaId.gov]humresponse]IIp]emerg.htmI) or on the CRS emergency response
Intranet sIte (Overseas OperatIons]PQSD]Emergency Response]Resources Ior
ProposaIs]FFP]ER).
FFP aIso Iunds transItIon actIvItIes to support popuIatIons In the move Irom emergency reIIeI
to deveIopment when the sItuatIon Is compIex and subject to IIuctuatIon. A TransItIon
ActIvIty ProposaI - TAP may be submItted when FFP IdentIIIes a country as eIIgIbIe Ior
transItIon support. TAP guIdance can be Iound In Annex C oI the FFP]ER guIdance.
OIIIce oI TransItIon nItIatIves (OT)
USAD]OT Is the oIIIce wIthIn USAD responsIbIe Ior provIdIng assIstance to countrIes that
are In a stage oI transItIon Irom crIsIs to recovery. ts assIstance Is desIgned to IacIIItate the
transItIon to peace and democracy by aIdIng In the demobIIIzatIon oI combatants or
deveIopIng democratIc governance structures wIthIn the country. OT's specIaI
InterventIons now IncIudes compIex emergencIes, post-conIIIct scenarIos, and the
preventIon oI dIsaster.
UnsoIIcIted ProposaIs
USAD encourages the submIssIon oI unsoIIcIted proposaIs whIch contrIbute new Ideas
consIstent wIth and contrIbutIng to the accompIIshment oI the Agency's objectIves.
However, the requIrements Ior contractor resources are normaIIy quIte program specIIIc and
must be responsIve to host country needs. Further, USAD's specIIIc objectIves are usuaIIy
desIgned In coIIaboratIon wIth the cooperatIng country. These Iactors can IImIt both the
need Ior and USAD's abIIIty to use unsoIIcIted proposaIs. ThereIore, prospectIve oIIerers are
encouraged to contact USAD to determIne the Agency's technIcaI and geographIcaI
requIrements as reIated to the oIIerer's Interests beIore preparIng and submIttIng a IormaI
unsoIIcIted proposaI.
USAD's poIIcIes regardIng unsoIIcIted proposaIs Ior grants and cooperatIve agreements are
set Iorth In ADS 303.5. Contract nIormatIon 8uIIetIn (C8) 99-18 dated 9]28]99 sets Iorth
USAD's guIdeIInes on submIssIon oI unsoIIcIted proposaIs and procedures Ior respondIng to
them that may resuIt In the award oI a contract, grant, or cooperatIve agreement.
3.1.4 US Department oI State-8ureau Ior PopuIatIon, ReIugees, and MIgratIon (8PRM)
8PRM provIdes muItIIateraI grants to InternatIonaI reIIeI organIzatIons In response to reIugee
emergency appeaIs and contrIbutes to the reguIar program budgets oI organIzatIons such
as the U.N. HIgh CommIssIoner Ior ReIugees (UNHCR).
3.1.5 UnIted States EmbassIes' Ambassador's Fund
As mentIoned In 3.1.3 above, once an event or sItuatIon Is determIned to requIre U.S.
Covernment assIstance, USAD]OFDA can ImmedIateIy provIde up to $25,000 to the U.S.
Ambassador]USAD MIssIon to purchase reIIeI suppIIes IocaIIy or gIve a contrIbutIon to a
reIIeI organIzatIon In the aIIected country. The AmerIcan Embassy In the country can aIso
aIIocate emergency IundIng dIrectIy to CRS.
3.1.6 UnIted States Department oI AgrIcuIture (USDA )
USDA does not have a partIcuIar mandate to respond to emergency programs, but wIII
consIder support when approprIate, especIaIIy through monetIzatIon. USDA Is not a vIabIe
resource to respond to the acute stage oI an emergency sInce they are not set up to respond
quIckIy, but shouId rather be consIdered Ior sIow onset emergency sItuatIons that do not
InvoIve IamIne, and Ior whIch Ionger term recovery eIIorts wIII be requIred. USDA Iunds,
generaIIy speakIng, are more approprIate Ior transItIon and recovery actIvItIes.
3.1.7 European CommIssIon HumanItarIan AId OIIIce (ECHO)
CRS Is currentIy eIIgIbIe to receIve dIrect IundIng Irom ECHO. WhIIe ECHO Is revIewIng the
eIIgIbIIIty oI CRS as a grantee (non-EU NCO vs. member oI C), CRS membershIp has been
extended untII December 2002. Country programs shouId consuIt wIth theIr regIonaI teams
In headquarters Ior an update on CRS status wIth ECHO II Interested In pursuIng Iunds Irom
thIs donor source. Any appIIcatIon Ior ECHO IundIng must be channeIed through the
Framework PartnershIp Agreement (FPA) sIgnatory In headquarters to be consIdered Ior
assIstance (currentIy, these shouId be sent to the DIrector oI the Overseas Support
Department and copIed to the ERT]HQ).
SpecIIIc guIdance Ior appIIcatIon Ior assIstance Irom ECHO (updated ]uIy 2001) can be Iound
on the CRS emergency response Intranet sIte (Overseas OperatIons>PQSD>Emergency
Response>Resources Ior ProposaIs>ECHO).
3.1.8 UnIted NatIons AgencIes
There are severaI UnIted NatIons agencIes that are dIrectIy operatIonaI themseIves and]or
support the work oI non-governmentaI organIzatIons In emergency sItuatIons. These
agencIes IncIude the WorId Food Programme (WFP), the Food and AgrIcuIture OrganIzatIon
(FAO), the UnIted NatIons HIgh CommIssIoner Ior ReIugees (UNHCR), the OIIIce Ior the
CoordInatIon oI HumanItarIan AIIaIrs (OCHA), and the WorId HeaIth OrganIzatIon (WHO).
These and other UN agencIes provIde IundIng to NCOs Ior reIIeI programs.
3.1.9 Other Donors
There are other donors Interested In supportIng emergency actIvItIes. Among donors who
have Iunded CRS emergency programs In the past are the UK Department Ior nternatIonaI
DeveIopment (DFD). Other governments may have emergency IundIng avaIIabIe to agencIes
such as CRS dependIng on the type oI emergency, the regIon and CRS' work and partners In
the area.
CRS Emergency ProposaI RevIew and
FundIng Process 3.2
The ERT currentIy conducts technIcaI revIews oI proposaIs seekIng prIvate CRS resources
Irom HQ. TechnIcaI revIews utIIIze the TechnIcaI CommIttee RevIew Format IncIuded In the
Project ProposaI CuIdance as a basIs Ior revIew, takIng Into consIderatIon the scope and
urgency oI the emergency. TechnIcaI revIews Ior other IundIng sources shouId be revIewed
accordIng to the regIonaI revIew system guIdeIInes Ior emergency projects. ERT technIcaI
advIsors wIII provIde comments on proposaIs beIng submItted Ior USAD Food For
Peace]OFDA, ECHO and other pubIIc IundIng upon request.
The ERT Is commItted to compIetIng the InItIaI technIcaI revIew oI a proposaI Ior CRS prIvate
Iunds wIthIn 48 hours oI receIpt. AIter conductIng the InItIaI revIew (see Annex C Ior the
technIcaI revIew Iormat), the ERT contacts the country program II there are any outstandIng
questIons or concerns regardIng the proposaI. n most cases, there Is an exchange oI
InIormatIon between the ERT and the country program untII aII are satIsIIed wIth the quaIIty
oI the proposaI. ThIs generaIIy does not take more than one week, dependIng on the types
oI Issues to be addressed. When the proposaI compIetes the technIcaI revIew, It can go
down one oI two paths. I the Iunds requested are Iess than US$50,000, the proposaI goes
to OSD where they work wIth FInance to IdentIIy Iund avaIIabIIIty and a IundIng source.
OSD notIIIes the country program oI thIs InIormatIon.
I the Iunds requested totaI more than US$50,000, the proposaI Is sent to the Deputy
ExecutIve DIrector Ior Overseas OperatIons (DED Overops) Ior IInaI approvaI. I approved,
the DED Overops Iorwards the proposaI to OSD and FInance Ior Iund aIIocatIon. The
dIagram on the IoIIowIng page IIIustrates thIs process.
t Is expected that responsIbIIIty Ior technIcaI revIews wIII devoIve to the regIons as regIonaI
emergency structures are strengthened, especIaIIy wIth the creatIon oI the CRS Emergency
Corps In 2002.
FIgure 3.1 Emergency ProposaI RevIew, RecommendatIon and FundIng
Procedure Ior CRS PrIvate Funds
Country program submIts
emergency proposaI wIth
RD endorsement to ERT Ior
TechnIcaI RevIew. nItIaI
IundIng request IndIcates
the amount oI regIonaI
reserve Iunds avaIIabIe to
support the project.
ERT notIIIes Overseas
Support Department and
FundraIsIng oI generaI
scope oI proposaI, InItIaI
amount requested,
regIonaI amount avaIIabIe
and notes II proposaI
meets the crIterIa Ior
O'NeII Iunds
ERT revIews proposaI and
provIdes InItIaI technIcaI
comments to the country
program (cc RD or
DRD]PQ) wIthIn 48
busIness hours oI receIpt
oI the proposaI.
I the proposaI Is
recommended Ior IundIng
by the ERT wIthout Iurther
comments, the ERT
prepares a memo
recommendIng the
proposaI Ior CRS prIvate
IundIng.
Memo recommendIng the
proposaI Ior CRS prIvate
Iunds IndIcates the amount
avaIIabIe Irom regIonaI
reserve Iunds and II the
proposaI quaIIIIes to
receIve O'NeII Iunds.
I comments are Issued,
responses to comments
are revIewed by the ERT
and II cIarIIIed, the ERT
prepares a memo
recommendIng the
proposaI Ior CRS prIvate
IundIng.
RecommendatIon Ior
IundIng requIres the
IoIIowIng sIgnatures:
ERT and PQSD
DIrector II under
$50,000 -
RecommendatIon
dIrected to
OSD]FInance
ERT, PQSD DIrector
and EMT II over
$50,000 -
RecommendatIon
dIrected to DED
Overops, cc.
OSD]FInance Ior
IoIIow-up.

When aII requIred sIgnatures have been obtaIned, the recommendatIon Is Iorwarded to OSD who work wIth
FInance to IdentIIy the approprIate Iund source. Upon IdentIIIcatIon oI IundIng source, OSD notIIIes the
RegIonaI Team who IoIIow up wIth FInance regardIng the dIsbursement oI Iunds and provIde copIes oI the
recommendatIon Ior IundIng to the EMT, RD, CR, FundraIsIng, CommunIcatIons and FInance. One oI the two
orIgInaI sIgned copIes oI the recommendatIon memo Is returned to the ERT Ior theIr IIIes.
Emergency Response WorkIng Croup 3.3
At the onset oI an emergency, an Emergency Response WorkIng Croup (ERWC) meetIng Is
convened by the ERT]HQ or, In theIr absence, by the RegIonaI Team Ior the area In whIch
the emergency Is Iocated.
The ERWC serves as a coordInatIon Iorum Ior IdentIIyIng the roIes and responsIbIIItIes oI HQ
departments In an emergency response. ERWC meetIngs are brIeI and to the poInt, wIth a
Iocus on key InIormatIon sharIng and IdentIIIcatIon oI actIon poInts. The generaI agenda
shouId IncIude:
1. An update oI the sItuatIon (RegIonaI Team RepresentatIve):
8rIeI outIIne oI the hIstory oI the sItuatIon and CRS' experIence In provIdIng
assIstance to the country]regIon (the RegIonaI Team representatIve shouId brIng
a map to show areas aIIected by the dIsaster)
CRS actIon to date
Status oI the securIty sItuatIon
Projected needs
AntIcIpated magnItude oI the response
2. DetermInatIon oI CRS' IeveI oI InvoIvement In the emergency*
3. HQ poInt person Ior the emergency (RegIonaI Team RepresentatIve)*
4. dentIIIcatIon oI Donor Source Code numbers (OSD, FundraIsIng, FInance
RepresentatIves)*
5. DecIsIon on a Iund descrIptIon*
6. DetermInatIon oI taIkIng poInts that may need to be deveIoped to assIst In
communIcatIons wIth the pubIIc [Ior FundraIsIng and to ensure that the CRS message Is
consIstent] (FundraIsIng, RegIonaI Team, PS RepresentatIves)*
7. PoIIcy Issues and needs (PS RepresentatIve)
8. CommunIcatIons and pubIIcatIons update and projectIons (CommunIcatIons
RepresentatIve)
9. WebsIte needs (WebsIte UnIt RepresentatIve)
10. Human resources needs (RegIonaI Team and HR RepresentatIves)
11. Status oI IncomIng caIIs, InquIrIes (FundraIsIng RepresentatIve)
12. FundraIsIng outIook (what do commItments currentIy Iook IIke and Is It IIkeIy we wIII
Iaunch an appeaI) (FundraIsIng RepresentatIve)
13. Status oI querIes oI In-kInd donatIons (FundraIsIng RepresentatIves)
14. PIanned CRS deIegatIon vIsIts (EMT and RegIonaI Team RepresentatIves)
15. Separate meetIngs may need to be arranged shouId some oI the matters requIre Iurther
dIscussIon (chaIrperson)
Notes are taken, actIon poInts hIghIIghted and cIrcuIated to aII ERWC members and aII
attendees as soon as possIbIe aIter the meetIng. The RegIonaI Team shouId Iorward the
mInutes to the country program gIvIng consIderatIon to the potentIaI sensItIvItIes In the
operatIng envIronment. As there Is the possIbIIIty that the mInutes may be cIrcuIated more
wIdeIy than to the ERWC, care shouId be taken to prepare brIeI, generaI notes that Iocus on
actIon poInts.
FoIIow-up meetIngs are scheduIed based on the magnItude oI the response and needs Ior
InIormatIon sharIng.
*A decIsIon wIII be reached durIng the ERWC meetIng
ERWC ComposItIon
Permanent ERWC Members:
1. Deputy ExecutIve DIrector]Overseas OperatIons
2. DIrector, Program QuaIIty & Support Department
3. Overseas Support Department (OSD)
4. FundraIsIng
5. Church Outreach
6. FInance
7. PurchasIng
8. PoIIcy and StrategIc ssues
9. Human Resources
10. CommunIcatIons
11. Web UnIt
12. Emergency Response Team]HQ
To dIscuss actIons requIred at the InItIaI onset oI an emergency, attendees shouId aIso
IncIude:
Deputy ExecutIve DIrector Ior SpecIaI Projects II securIty Is an Issue
RegIonaI Team]Croup representatIve responsIbIe Ior the regIon In whIch the emergency
Is sItuated
PS representatIve wIth a Iocus on the country]regIon In whIch the emergency Is sItuated
Annexes
A. CRS CuIdeIInes on HumanItarIan ActIon In ConIIIct SItuatIons
8. CRC]FRC]NCO Code oI Conduct
C. Sphere Project HumanItarIan Charter
D. nternatIonaI Law nstruments and Cround RuIes Ior HumanItarIan AId In ConIIIct
SItuatIons
E. CRS Emergency Preparedness & Response Program QuaIIty Statements
F. CRS Emergency ProposaI Format
C. TechnIcaI RevIew Format
H. Cap dentIIIcatIon Chart
. C CuIdeIInes Ior Major EmergencIes
]. CRS SItuatIon ReportIng Formats
K. Emergency Response Team OrganIzatIonaI Chart
L. Emergency Response CheckIIst Ior Managers
M. HumanItarIan ReIIeI News, OrganIzatIons, Donors WebsItes
A. CRS CuIdeIInes on HumanItarIan
ActIon In ConIIIct SItuatIons
8eIow Is an abrIdged versIon oI the CRS CuIdeIInes on HumanItarIan AssIstance In ConIIIct
SItuatIons dIssemInated In AprII 1992 (IormerIy known as the Harper's Ferry CuIdeIInes).
The versIon IncIuded does not IncIude sectIons on sItuatIon reports and proposaI guIdeIInes
that are superseded wIth the InIormatIon IncIuded In other annexes oI thIs handbook. t has
aIso been edIted to reIIect changes In CRS structures.
CRS CuIdeIInes on HumanItarIan ActIon In ConIIIct SItuatIons
ntroductIon
CRS has deveIoped a Iramework wIthIn whIch to manage emergency responses In conIIIct
sItuatIons. What IoIIows Is IIrst, a set oI basIc prIncIpIes whIch wIII guIde CRS' response In
conIIIct sItuatIons. These prIncIpIes are broad enough to address the range oI conIIIct
sItuatIons In whIch CRS works, and have been derIved Irom CRS' MIssIon Statement and
CathoIIc socIaI teachIng.
n drawIng Irom the MIssIon Statement, the IoIIowIng Is centraI to the guIdeIInes: "The
IundamentaI motIvatIng Iorce In aII actIvItIes oI CRS Is the gospeI oI ]esus ChrIst as It
pertaIns to the aIIevIatIon oI human suIIerIng, the deveIopment oI peopIe and the IosterIng
oI charIty and justIce In the worId."
Together wIth CaudIum et spes and Pope ]ohn PauI 's SoIIIcItudo reI socIaIIs, Pacem In
terrIs Iays out the prIncIpIes Ior a contemporary CathoIIc theoIogy oI InternatIonaI aIIaIrs
centered on "the unIversaI common good."
8ased on CathoIIc socIaI teachIng, the guIdeIInes have reIIed partIcuIarIy on Pacem In terrIs,
Pope ]ohn XX's 1963 encycIIcaI. The concepts oI the common good and the human dIgnIty
oI the person as weII as the Importance oI "readIng the sIgns oI the tImes" are taken Irom
thIs Iandmark document.
Second, CRS has IdentIIIed a serIes oI essentIaI condItIons that must be met In any response
to a conIIIct sItuatIon to ensure the IntegrIty and eIIectIveness oI the response. These
condItIons are consIstent wIth the PrIncIpIes oI Response and are derIved Irom our rIch and
dIverse experIence.
FoIIowIng the prIncIpIes and condItIons Is a sectIon that sets Iorth recommendatIons on the
desIgn oI the response. ThIs IncIudes sectIons on pre-assessment, assessment, re-
assessment and cross-border and cross-IIne operatIons.
AIter the desIgn sectIon comes a serIes oI sectIons whIch dIscuss operatIonaI Issues:
coordInatIon, use oI Iood, personneI, materIaI support, and IundIng. FInaIIy, there Is a
concIudIng sectIon on addressIng the underIyIng causes oI conIIIct.
. PRNCPLES OF RESPONSE
A. PrIncIpIe oI the Common Cood
FoIIowIng CathoIIc SocIaI TeachIng, CRS beIIeves that aIthough the common good Is the IIrst
responsIbIIIty oI government, It Is IIkewIse a socIaI responsIbIIIty IaIIIng on aII persons and
groups. When poIItIcaI authorItIes, eIther domestIc or InternatIonaI, IaII to protect the
common good (understood as the saIeguardIng and protectIon oI cIvII, poIItIcaI, economIc,
and socIaI human rIghts), It IaIIs to others, IncIudIng socIaI InstItutIons such as CRS, to act
on behaII oI the rIghts oI a deprIved popuIatIon, when that popuIatIon Is unabIe to protect
ItseII.
8. PrIncIpIe oI Human DIgnIty
CRS' response In conIIIct sItuatIons Is to aIIevIate human suIIerIng, promote human
deveIopment, and Ioster a cuIture oI peace, respect and dIgnIty.
C. PrIncIpIe oI mpartIaIIty
CRS' response In conIIIct sItuatIons Is ImpartIaI wIth respect to race, creed, poIItIcaI
orIentatIon, and ethnIcIty, but Is partIaI to the poor, the suIIerIng, and the margInaIIzed. CRS
onIy assIsts cIvIIIan vIctIms In conIIIct sItuatIons. CRS preIers to assIst vIctIms on both sIdes
oI the conIIIct unIess needs on one sIde are met by other groups or unIess operatIonaI
consIderatIons precIude workIng on both sIdes.
D. PrIncIpIe oI Non-PartIsanshIp
CRS Is non-partIsan In Its approach to humanItarIan assIstance In conIIIct sItuatIons In the
sense that CRS neIther takes sIdes nor supports partIsan causes In the hostIIItIes. ConsIstent
wIth our mandate, CRS stands In soIIdarIty wIth the vIctIms oI the conIIIct.
E. PrIncIpIe oI ndependence
CRS' humanItarIan actIon requIres operatIonaI Ireedom to IunctIon wIthout poIItIcaI or other
InterIerence. CRS, and]or our partners, must be Iree to operate wIthout arbItrary detentIon
oI staII, seIzure oI reIIeI equIpment or dIversIon oI reIIeI suppIIes. WIthout thIs
Independence humanItarIan actIon Is ImpossIbIe.
. CONDTONS OF RESPONSE
A. CondItIons Ior CRS
1. CRS must conduct a thorough anaIysIs oI the background and causes (poIItIcaI,
economIc, socIaI, reIIgIous, and cuIturaI) oI the conIIIct.
2. CRS must assess the capabIIItIes oI the partner, II any, other organIzatIons, and target
popuIatIons and determIne the possIbIIItIes oI joInt response.
3. CRS must anaIyze the projected Impact oI the response and shouId ensure that neIther
the provIsIon nor the source oI the resources Is used to IueI the conIIIct or to jeopardIze
the target popuIatIon. The anaIysIs shouId ensure that more vuInerabIe segments oI the
popuIatIon are not adverseIy aIIected by the response. Further, an assessment shouId
be made oI the CRS "vaIue added" I.e., what specIIIc contrIbutIon CRS can make whIch
others are not.
8. CondItIons Ior Partners
When CRS' response wIII be channeIed through partners:
1. The partners must be knowIedgeabIe oI, subscrIbe to, and act In a manner consIstent
wIth, CRS' PrIncIpIes oI Response.
2. CRS' partners must have access to the targeted popuIatIon; they must be abIe to vIsIt the
aIIected areas and to communIcate perIodIcaIIy wIth the beneIIcIarIes.
3. CRS' partners must have the capacIty to pIan, carry out, and account Ior resources
provIded to them.
4. n those sItuatIons where no partners are avaIIabIe, or meet the above condItIons and
CRS Is operatIonaI, the CRS IIeId oIIIce must be abIe to meet the above condItIons.
. DESCN OF RESPONSE
ConIIIct sItuatIons, across the entIre contInuum, Irom sporadIc vIoIatIons oI human rIghts to
IuII-scaIe war, requIre even more careIuI desIgn oI response than normaI CRS programmIng.
A. Pre-assessment
WhIIe recognIzIng the need Ior quIck and decIsIve actIon when conIronted wIth humanItarIan
needs In conIIIct sItuatIons, It Is Important to deveIop the terms oI reIerence oI assessments
In consuItatIon, IIrst, wIth headquarters and the approprIate regIonaI oIIIce, and second,
wIth other InternatIonaI humanItarIan and deveIopment agencIes, I.e., other NCOS, UN
agencIes, IocaI Church partners, donors, etc. The consuItatIon process shouId contInue
durIng and aIter the assessment perIod.
t Is partIcuIarIy Important that regIonaI oIIIces be consuIted when dIscussIng the Iong-term
ImpIIcatIons oI the emergency program and Its potentIaI eIIects on CRS programs In
neIghborIng countrIes.
RatIonaIe: The consuItatIve process sets the basIs Ior Iuture coIIaboratIve eIIorts, sheds IIght
on securIty and access consIderatIons, and provIdes guIdance In the IormuIatIon oI poIItIcaI
judgments as they reIate to Issues oI ImpartIaIIty and justIce]peace programmIng
opportunItIes.
8. Assessment
1. An on-the-ground assessment oI needs and capacItIes shouId be a prerequIsIte to the
deveIopment oI an emergency response, IncIudIng project proposaIs and operatIonaI pIans.
AIthough CRS staII shouId Iead such assessments, partIcIpatIon by other NCO
representatIves shouId be encouraged. Assessments shouId IncIude a sIte vIsIt whenever
possIbIe.
2. The assessment shouId IoIIow InternatIonaIIy accepted standards wIth the IoIIowIng
addItIonaI InIormatIon:
a. The assessment oI needs shouId consIder:
I. An anaIysIs oI both the capacItIes and the vuInerabIIItIes present In the aIIected
popuIatIon and In IocaI organIzatIons.
II. The urgency oI need and whether It Is IIIe threatenIng or otherwIse crItIcaI.
III. The needs oI partIcuIar CRS-targeted prIorIty groups (poor, unreached by others, etc.)
aIIected by the conIIIct.
b. The assessment oI CRS response shouId consIder the needs reIatIve to exIstIng
capacItIes In crIsIs areas, IncIudIng the capacItIes oI IocaI peopIe, IocaI organIzatIons,
churches and oI other externaI agencIes (UN, NCOS, donors, etc.)
I. When the need Is great but others have capacItIes to meet It, CRS IIeId response Is not
necessary.
II. I capacItIes exIst but are not addressIng partIcuIar needs (such as trauma) or groups
(such as women), a gap may exIst warrantIng CRS response.
III. When needs are unmet and a CRS or partner capacIty exIsts, a CRS response Is
caIIed Ior.
c. An assessment oI probabIe eIIectIveness oI aIternatIve CRS responses shouId IncIude:
I. Assessment oI CRS resources or access to resources vIs-a-vIs unmet needs.
I. Assessment oI CRS capacItIes vIs-a-vIs unmet needs.
III. A crItIcaI assessment oI IocaI partners and other materIaI and InstItutIonaI capacItIes
to respond to the emergency sItuatIon, to IncIude an examInatIon oI what other na
tIonaI and InternatIonaI NCO]UN and government agencIes are doIng or Intend to do
In response to the emergency sItuatIon.
Iv. PossIbIe "resIstance" to CRS response -- Church, jeopardy to other CRS work, IIabIIIty
to CRS work through resource reaIIocatIon e.g., staII reassIgnment.
v. Access to regIon (poIItIcaI, mIIItary and IogIstIcaI). See sectIon on Cross-8order Ar-
rangements.
vI. AbIIIty to meet accountabIIIty crIterIa In the areas oI access, record keepIng, and re
portIng.
vII. StaIIIng requIrements, IncIudIng an assessment oI approprIate housIng, Iood, water
etc., Ior CRS staII.
vIII. An anaIysIs oI the poIItIcaI and conIIIct- securIty envIronment.
Ix. MInImum communIcatIon requIrements.
x. An anaIysIs oI the eIIects oI conIIIct sItuatIons on women, women-headed house
hoIds, chIIdren and the eIderIy.
xI. PsychoIogIcaI]mentaI heaIth Issues.
xII. 8udgetary ImpIIcatIons.
xIII. OpportunItIes Ior contrIbutIng to a process oI peace.
RatIonaIe: Emergency response programs based on comprehensIve assessments are more
IIkeIy to antIcIpate Iuture programmIng constraInts and programmIng opportunItIes.
Assessments wIII aIso heIp to determIne the approprIate resource mIx to empIoy In response
to the emergency as weII as guIde the IInancIaI pIannIng and budgetary process.
3. AII oI the above are assessed In order to determIne eIIectIveness In terms oI:
a. MeetIng ImmedIate needs
b. ContrIbutIng to Iong-term deveIopment and peace and justIce
C. Re-assessment
Systems shouId be deveIoped to ensure that perIodIc re-assessments oI needs, condItIons,
and the overaII workIng envIronment are conducted by externaI (out oI country) personneI,
wIth prIorIty pIaced on regIonaI staII. The re-assessment process shouId examIne the
muItIpIe optIons oI redIrectIng CRS resources IncIudIng the optIon oI phasIng out CRS
assIstance.
RatIonaIe: ConIIIct sItuatIons are Intense and IIuId and requIre reguIarIy updated sItuatIonaI
anaIyses to ensure maxImum program Impact. SpecIaI areas oI consIderatIon shouId be
Issues reIated to targetIng, securIty, and ImpartIaIIty. ExternaI assIstance Is requIred sInce
staII workIng In day- to-day conIIIct sItuatIons may have Iess than optImaI objectIvIty.
D. Cross-border and Cross-IIne OperatIons
1. n every conIIIct sItuatIon where CRS responds, CRS shouId Iook Ior opportunItIes to work
on both sIdes oI the conIIIct In order to buIId opportunItIes Ior Iuture reconcIIIatIon.
CRS Is partIcuIarIy weII-suIted to do thIs In sItuatIons where there Is a CathoIIc Church on
both sIdes.
2. n undertakIng a cross-border operatIon, CRS must be In touch wIth the churches and
other reIevant bodIes on both sIdes. n these cases, CRS must ensure that the gaIns oI
provIdIng humanItarIan assIstance to both sIdes outweIgh any potentIaI cost Incurred as the
resuIt oI thIs assIstance, I.e., that operatIons on one sIde are not jeopardIzed by operatIons
on the other. WhIIe CRS wIII not negotIate away the rIght to operate on both sIdes,
pragmatIsm and an eIIectIve dIvIsIon oI Iabor may Iead to a decIsIon to operate on onIy one
sIde.
3. nsoIar as agreements provIde Increased securIty, accountabIIIty, and promote
eIIectIveness oI operatIons, they shouId be sIgned between CRS, IocaI poIItIcaI authorItIes,
and InternatIonaI bodIes. AII agreements that CRS sIgns shouId IncIude an expIIcIt statement
about the prImacy oI humanItarIan assIstance. DraIt agreements shouId be revIewed and
approved by headquarters.
V. COORDNATON WTH NCOS, UN ACENCES, DONORS, AND OTHER
ORCANZATONS
A. CRS supports and wIII partIcIpate In coordInated pIannIng, assessment and operatIons
InsoIar as they are consIstent wIth our prIncIpIes and condItIons oI response. Such
coordInatIon Is a crItIcaI component In mountIng an eIIectIve emergency response program.
ThIs IncIudes coordInatIon wIth Church partners, NCOS, CRC, donors UN agencIes, Inter-
governmentaI organIzatIons and governments. The most crItIcaI IeveI oI coordInatIon Is In
the IIeId. 8ut coordInatIon shouId aIso occur at the InternatIonaI IeveI, especIaIIy In the
areas oI advocacy, pubIIc educatIon and InIormatIon sharIng.
8. To IacIIItate thIs coordInatIon, CRS IIeId staII shouId maIntaIn contInued contact wIth IocaI
government, UN and Church authorItIes, USAD mIssIons and other donors, partIcuIarIy
those wIth a dIsaster roIe. StaII shouId keep the Church, the UN, and donors InIormed oI
CRS programmIng durIng conIIIct sItuatIons. ThIs shouId be repIIcated at HQ IeveI, In
conjunctIon wIth other major NCOs and NCO consortIa. CRS IIeId oIIIces shouId partIcIpate
In aII essentIaI InternatIonaI and IocaI coordInatIng bodIes.
C. CRS country programs shouId partIcIpate In coordInatIon eIIorts when these eIIorts
ensure that a) aII members oI the "at rIsk" popuIatIon are IncIuded In overaII pIannIng and b)
the reIIeI assIstance Is dIstrIbuted equItabIy wIthIn targeted areas.
D. CRS country programs shouId be prepared to share human and materIaI resources wIth
other NCOs when sharIng wIII maxImIze eIIectIveness.
E. CRS programs ImpIementIng emergency responses In conIIIct sItuatIons and theIr regIonaI
oIIIces shouId ensure the tImeIy IIow oI InIormatIon to CarItas nternatIonaIIs (C) and other
Interested bodIes. FIeId and headquarters staII shouId partIcIpate when possIbIe In C
emergency meetIngs and other NCO Iora.
V. USE OF FOOD
A. Food as an ApproprIate Resource
1. PrIncIpIe: The provIsIon oI Iood Is approprIate In conIIIct sItuatIons when peopIe are In
need, when It Is used to reduce vuInerabIIItIes, when It Is weII targeted, when It Is tIme-
bound and where access to adequate Iood In the conIIIct area does not exIst. A Iood
resource may come Irom eIther IocaI purchases, Iood swaps or IoreIgn donatIons.
Food Is not an approprIate resource In a conIIIct sItuatIon II the dIstrIbutIon oI Iood resuIts
In: coerced movements or wInnIng poIItIcaI aIIegIances, dIsruptIon oI tradItIonaI copIng
mechanIsms or resuIts In IueIIng the conIIIct.
Need Is determIned through; 1. anecdotaI reports such as movement oI popuIatIons,
IIuctuatIons In agrIcuIturaI commodIty prIces and Increases In nutrItIon reIated dIsease; 2.
on the ground Independent needs assessment Irom CRS, other NCOs and]or UN agencIes,
and 3. muItIIateraI and bIIateraI sItuatIonaI reports.
2. RatIonaIe: Food shortages are a common resuIt oI proIonged conIIIct due to
dIsruptIons In normaI agrIcuIturaI cycIes and market mechanIsms. CRS poIIcy Is that Iood
can be used as an eIIectIve resource and ought to be consIdered Ior use where approprIate.
CRS has access to and managerIaI capacIty to program Iood assIstance In emergency
sItuatIons.
3. AssumptIons: Food resources are avaIIabIe Ior use In conIIIct sItuatIons. CapacIty oI
partners (Iood resources are more tIme and capItaI IntensIve than other non-Iood
InterventIons.)
8. TargetIng oI Resources
1. PrIncIpIe: HumanItarIan assIstance Is targeted to the most vuInerabIe cIvIIIan groups, as
determIned by crIterIa estabIIshed and revIewed through ongoIng needs assessments. CRS
wIII not enter Into any agreements to provIde assIstance dIrectIy to combatants Ior use or
dIstrIbutIon.
2. RatIonaIe: Sound targetIng and ongoIng assessment maxImIzes Impact oI InterventIon,
reduces perceptIons oI partIsanshIp and avoIds IueIIng conIIIct.
3. AssumptIons: There must be a capacIty Ior on-goIng needs assessments. ReachIng the
most vuInerabIe remaIns the overrIdIng concern and there are rIsks that some Iood wIII
reach combatants.
C. DeveIopmentaI mpact
1. PrIncIpIe: n addItIon to the obvIous short term Impacts oI provIdIng Iood In conIIIct
sItuatIons humanItarIan assIstance has the potentIaI Ior both a posItIve and]or negatIve Iong
term Impact on a communIty. ThereIore, Iood assIstance shouId Iocus on IncreasIng
capacItIes as weII as reducIng vuInerabIIItIes oI a communIty.
SpecIIIcaIIy, Iood assIstance shouId:
a. support rather than dIsrupt exIstIng tradItIonaI copIng mechanIsms.
b. reInIorce and strengthen the capacIty oI a IocaI partner to eIIectIveIy respond to conIIIct
sItuatIons.
c. assIst a communIty to return to a condItIon whereby seII- sustaInIng actIvItIes can return
or be deveIoped.
d. not undermIne the peaceIuI resoIutIon oI a conIIIct.
2. RatIonaIe: Reduce the need Ior Iong term outsIde assIstance.
3. AssumptIons:
a. There exIsts an actuaI or potentIaI InstItutIonaI capacIty, eIther wIthIn CRS or among IocaI
partners, to address Iong term deveIopment Issues In conIIIct sItuatIons.
b. The desIgn and ImpIementatIon oI an emergency program shouId InvoIve broad-based
partIcIpatIon oI communItIes and partners.
c . There are acceptabIe IeveIs oI securIty and stabIIIty wIthIn the operatIng envIronment
that aIIows Ior IocaI partner partIcIpatIon In emergency sItuatIons.
d. There Is eIIectIve coordInatIon among NCO's to avoId IncompatIbIe programmIng and to
provIde securIty to operate an emergency program.
D. AccountabIIIty
1. PrIncIpIe: CRS wIII meet the agency's accountabIIIty standards. n recognItIon oI the Iact
that conIIIct sItuatIons present unIque condItIons Ior accountabIIIty, any exceptIon to these
standards wIII be justIIIed, negotIated wIth the donor, and documented In the operatIonaI
pIan.
2. RatIonaIe: There Is a need Ior acceptabIe and agreed to standards oI accountabIIIty to
maIntaIn the IntegrIty oI the agency as a steward oI a resource.
3. AssumptIons:
a. There are quaIIIIed and experIenced staII to monItor and account Ior CRS resources.
b. There exIsts a posItIve negotIatIng envIronment between a donor and CRS.
V. PERSONNEL
A. Human Resources shouId maIntaIn and reguIarIy up-date a IIIe oI peopIe
(InternaI]externaI) Ior conIIIct assIgnments.
8. CRS]HQ shouId ensure that HQ and IIeId oIIIces are adequateIy staIIed such that IIeId
transIers and TDY assIgnments do not adverseIy aIIect reguIar, non-emergency
programmIng eIIorts or overIy burden the oIIIces oI neIghborIng country programs.
C. PersonneI Ior emergency-conIIIct assIgnments whIch are consIdered to be war-rIsk
areas as desIgnated by the Agency, shouId have specIIIc characterIstIcs to IncIude the
IoIIowIng: (1) the assIgnment shouId be voIuntary, (2) they must receIve orIentatIon on CRS
conIIIct guIdeIInes, and (3) they must be abIe to IIve In dIIIIcuIt and Insecure envIronments.
D. RegIonaI oIIIces must remaIn In Irequent contact and exhIbIt genuIne concern Ior aII
staII, contInuaIIy assure IIeId staII that theIr poInt oI vIew Is understood, and be supportIve
when dIscussIng programmIng or managerIaI dIIIerences. StaII goIng Into conIIIct sItuatIons
shouId receIve adequate brIeIIngs on psychoIogIcaI stress IIkeIy to be encountered, prIor to
departIng Ior the IIeId; CRS]HQ or IIeId staII In neIghborIng countrIes shouId make tIme
avaIIabIe to dIscuss staII experIences, dIIIIcuItIes encountered, stress-reIated probIems, etc.
In an eIIort to make the transItIon Irom conIIIct sItuatIons to normaI envIronments as
smooth and as stress-Iree as possIbIe. StaII shouId have access to proIessIonaI counseIIng II
necessary.
E. CRS]HQ shouId deveIop approprIate R]R compensatIon poIIcIes Ior InternatIonaI
personneI servIng In conIIIct areas.
F. When estabIIshIng an emergency program In a conIIIct sItuatIon, the ImpIementatIon
team shouId IncIude personneI experIenced In settIng up IogIstIcs and admInIstratIve
systems, In addItIon to the overaII CRS IIeId manager.
C. ContIngency pIans Ior the evacuatIon oI CRS InternatIonaI staII and]or theIr dependents
must be deveIoped and staII shouId be prepared to Ieave at any tIme. EIIorts shouId be
made to secure US Embassy and]or other embassy assIstance In provIdIng securIty,
protectIon and evacuatIon not onIy to US cItIzens but aIso to InternatIonaI non-U.S. cItIzens
workIng Ior CRS. (See SecurIty and StaII SaIety CuIdeIInes Ior CRS FIeId Workers)
H. CRS country programs shouId deveIop country-specIIIc securIty standard operatIng
procedures Ior ImpIementatIon In conIIIct sItuatIons IncIudIng specIIIc reIerence to
probIems Iaced by CRS women staII members. These procedures shouId be based on the
contents oI the SecurIty and StaII SaIety CuIdeIInes Ior CRS FIeId Workers.
. Under no cIrcumstances may CRS personneI bear arms.
]. CRS IIeId oIIIces shouId anaIyze on a reguIar basIs the IeveI oI rIsk to natIonaI staII
assocIated wIth workIng In conIIIct sItuatIons wIth the aIm oI reducIng those rIsks by
reIocatIon or other means. n addItIon, CRS IIeId oIIIces shouId deveIop strategIes Ior
addressIng "burn-out," motIvatIonaI, and compensatIon Issues reIated to CRS natIonaI staII.
K. A "non-TItIe " IogIstIcs oIIIcer]manager shouId be posItIoned on the project
ImpIementatIon team and charged wIth responsIbIIItIes Ior oIIIce set-up and the "care and
IeedIng" oI project personneI.
L. CRS]HQ shouId make a commItment to ensure that staII workIng In conIIIct areas are
provIded wIth saIe and adequate housIng.
RatIonaIe: The adequate provIsIon oI materIaI support to CRS IIeId oIIIces operatIng In
conIIIct sItuatIons serves to reduce stress, Improve eIIectIveness, Increase accountabIIIty,
and IImIt securIty rIsks.
V. MATERAL SUPPORT
A. CRS]HQ shouId have the IoIIowIng materIaI support In the Iorm oI portabIe kIts avaIIabIe
Ior ImmedIate deIIvery to the project sIte:
- oIIIce]admInIstratIve suppIIes and manuaIs - IInancIaI suppIIes, IncIudIng Iedgers - TItIe
manuaIs, materIaIs and Iorms
- D]name cards, T-shIrts, CRS Iogos, CRS packIng tape
8. CRS]HQ shouId have mechanIsms Ior the ImmedIate purchase and deIIvery oI vehIcIes
and spare parts requIred durIng program ImpIementatIon.
C. CRS]HQ shouId Iook at approprIate communIcatIon systems and estabIIsh
guIdeIInes]parameters to be appIIed by the assessment team In deveIopIng
recommendatIons In thIs area.
V. FUNDNC
CRS prIvate Iunds can be made avaIIabIe In the IIeId to support emergency start-up and
program actIvItIes. CRS IIeId oIIIces are aIso encouraged to access IocaI IundIng Irom the US
Ambassador's $25,000 emergency Iund and other pubIIc donor sources such as USAD, WFP,
ECHO and others. CRS shouId aIso Iobby the USC and others Ior the retroactIve
reImbursement oI start-up Iunds IegItImateIy charged to externaI donors.
CRS shouId not be InIIuenced by the poIItIcaI persuasIon oI IundIng sources, partIcuIarIy II
donors have a stake or roIe In the conIIIct sItuatIon.
X. RECOMMENDATONS FOR ADDRESSNC UNDERLYNC CAUSES
A. RecognIzIng the thIrd prIncIpIe oI human dIgnIty, to Ioster a cuIture oI peace and
respect, CRS has a moraI responsIbIIIty to work towards cessatIon oI the conIIIct, to promote
non-vIoIent soIutIons, and to address underIyIng causes. CRS shouId undertake one or more
oI the IoIIowIng:
- SupportIng the IocaI Church's eIIorts to deveIop actIvItIes and strategIes toward
reconcIIIatIon and non-vIoIent resoIutIon oI conIIIct;
SupportIng human rIghts actIvItIes (see approved 8oard poIIcy) wIth dIscretIon whIIe
maIntaInIng a Iow proIIIe In the IIeId;
n sItuatIons wIth reIIgIous tensIon, attemptIng to promote Inter-reIIgIous understandIng
and coIIaboratIon through Its programs;
ConductIng pubIIc educatIon In the U.S. about the causes oI the conIIIct through a
varIety oI avenues, IncIudIng donor appeaIs;
NetworkIng wIth and provIdIng InIormatIon to organIzatIons wIth specIaIIzed skIIIs and
the mandate Ior addressIng specIIIc underIyIng causes.
8. RecognIzIng that In conIIIct as In other emergencIes preventIon Is better than cure, CRS
shouId expIIcItIy IncIude consIderatIon oI Issues oI IncIpIent and exIstIng conIIIcts In the
deveIopment oI every country program strategy.
When assessIng opportunItIes Ior provIdIng humanItarIan assIstance In conIIIct sItuatIons,
the assessment shouId ask specIIIc questIons reIated to how CRS can promote a process oI
heaIIng, reconcIIIatIon and deveIopment at communIty, natIonaI and InternatIonaI IeveIs.
When desIgnIng programs that promote a heaIIng and reconcIIIatIon process, program
desIgners need to be sensItIve to underIyIng poIItIcaI, economIc, and cuIturaI causes, I.e.,
beIIeI systems, ethnIc rIvaIrIes, reIIgIous dIIIerences, etc., oI the conIIIct.
RatIonaIe: n conIIIct sItuatIons, the provIsIon oI materIaI assIstance, though essentIaI In and
oI ItseII, does not constItute an adequate humanItarIan response to the needs oI aIIected
communItIes.
8. CRC]FRC]NCO Code oI Conduct
CRS and CarItas nternatIonaIIs are sIgnatorIes oI the CRC]FRC]NCO Code oI Conduct
wrItten In 1994. The Code oI Conduct Iays out the prIncIpIes by whIch we work In dIsaster
sItuatIons. t Is a voIuntary code that humanItarIan actors oI good IaIth strIve to respect In
order to ensure the quaIIty oI dIsaster response work.
FoIIowIng Is a summary oI the key prIncIpIes artIcuIated In the Code oI Conduct.
The Code oI Conduct
PrIncIpIes oI Conduct Ior The nternatIonaI Red Cross and Red Crescent Movement
and NCOs In DIsaster Response Programmes
1. The HumanItarIan ImperatIve comes IIrst
The rIght to receIve humanItarIan assIstance, and to oIIer It, Is a IundamentaI humanItarIan
prIncIpIe whIch shouId be enjoyed by aII cItIzens oI aII countrIes. As members oI the
InternatIonaI communIty, we recognIse our obIIgatIon to provIde humanItarIan assIstance
wherever It Is needed. Hence the need Ior unImpeded access to aIIected popuIatIons, Is oI
IundamentaI Importance In exercIsIng that responsIbIIIty. The prIme motIvatIon oI our
response to dIsaster Is to aIIevIate human suIIerIng amongst those Ieast abIe to wIthstand
the stress caused by dIsaster. When we gIve humanItarIan aId It Is not a partIsan or poIItIcaI
act and shouId not be vIewed as such.
2. AId Is gIven regardIess oI the race, creed or natIonaIIty oI the recIpIents and wIthout
adverse dIstInctIon oI any kInd. AId prIorItIes are caIcuIated on the basIs oI need aIone
Wherever possIbIe, we wIII base the provIsIon oI reIIeI aId upon a thorough assessment oI
the needs oI the dIsaster vIctIms and the IocaI capacItIes aIready In pIace to meet those
needs. WIthIn the entIrety oI our programmes, we wIII reIIect consIderatIo ns oI
proportIonaIIty. Human suIIerIng must be aIIevIated whenever It Is Iound; IIIe Is as precIous
In one part oI a country as another. Thus, our provIsIon oI aId wIII reIIect the degree oI
suIIerIng It seeks to aIIevIate. n ImpIementIng thIs approach, we recognIse the crucIaI roIe
pIayed by women In dIsaster prone communItIes and wIII ensure that thIs roIe Is supported,
not dImInIshed, by our aId programmes. The ImpIementatIon oI such a unIversaI, ImpartIaI
and Independent poIIcy, can onIy be eIIectIve II we and our partners have access to the
necessary resources to provIde Ior such equItabIe reIIeI, and have equaI access to aII
dIsaster vIctIms.
3. AId wIII not be used to Iurther a partIcuIar poIItIcaI or reIIgIous standpoInt
HumanItarIan aId wIII be gIven accordIng to the need oI IndIvIduaIs, IamIIIes and
communItIes. Not wIthstandIng the rIght oI NCHAs to espouse partIcuIar poIItIcaI or
reIIgIous opInIons, we aIIIrm that assIstance wIII not be dependent on the adherence oI t he
recIpIents to those opInIons. We wIII not tIe the promIse, deIIvery or dIstrIbutIon oI
assIstance to the embracIng or acceptance oI a partIcuIar poIItIcaI or reIIgIous creed.
4. We shaII endeavour not to act as Instruments oI government IoreIgn poIIcy
NCHAs are agencIes whIch act IndependentIy Irom governments. We thereIore IormuIate our
own poIIcIes and ImpIementatIon strategIes and do not seek to ImpIement the poIIcy oI any
government, except In so Iar as It coIncIdes wIth our own Independent poIIcy. We wIII never
knowIngIy - or through negIIgence - aIIow ourseIves, or our empIoyees, to be used to
gather InIormatIon oI a poIItIcaI, mIIItary or economIcaIIy sensItIve nature Ior governments
or other bodIes that may serve purposes other than those whIch are strIctIy humanItarIan,
nor wIII we act as Instruments oI IoreIgn poIIcy oI donor governments. We wIII use the
assIstance we receIve to respond to needs and thIs assIstance shouId not be drIven by the
need to dIspose oI donor commodIty surpIuses, nor by the poIItIcaI Interest oI any partIcuIar
donor. We vaIue and promote the voIuntary gIvIng oI Iabour and IInances by concerned
IndIvIduaIs to support our work and recognIse the Independence oI actIon promoted by such
voIuntary motIvatIon. n order to protect our Independence we wIII seek to avoId
dependence upon a sIngIe IundIng source.
5. We shaII respect cuIture and custom
We wIII endeavour to respect the cuIture, structures and customs oI the communItIes and
countrIes we are workIng In.
6. We shaII attempt to buIId dIsaster response on IocaI capacItIes
AII peopIe and communItIes - even In dIsaster - possess capacItIes as weII as vuInerabIIItIes.
Where possIbIe, we wIII strengthen these capacItIes by empIoyIng IocaI staII, purchasIng
IocaI materIaIs and tradIng wIth IocaI companIes. Where possIbIe, we wIII work through IocaI
NCHAs as partners In pIannIng and ImpIementatIon, and co-operate wIth IocaI government
structures where approprIate. We wIII pIace a hIgh prIorIty on the proper co-ordInatIon oI
our emergency responses. ThIs Is best done wIthIn the countrIes concerned by those most
dIrectIy InvoIved In the reIIeI operatIons, and shouId IncIude representatIves oI the reIevant
UN bodIes.
7. Ways shaII be Iound to InvoIve programme beneIIcIarIes In the management oI reIIeI aId
DIsaster response assIstance shouId never be Imposed upon the beneIIcIarIes. EIIectIve
reIIeI and IastIng rehabIIItatIon can best be achIeved where the Intended beneIIcIarIes are
InvoIved In the desIgn, management and ImpIementatIon oI the assIstance prog ramme. We
wIII strIve to achIeve IuII communIty partIcIpatIon In our reIIeI and rehabIIItatIon
programmes.
8. ReIIeI aId must strIve to reduce Iuture vuInerabIIItIes to dIsaster as weII as meetIng basIc
needs
AII reIIeI actIons aIIect the prospects Ior Iong term deveIopment, eIther In a posItIve or a
negatIve IashIon. RecognIsIng thIs, we wIII strIve to ImpIement reIIeI programmes whIch
actIveIy reduce the beneIIcIarIes' vuInerabIIIty to Iuture dIsasters and h eIp create
sustaInabIe IIIestyIes. We wIII pay partIcuIar attentIon to envIronmentaI concerns In the
desIgn and management oI reIIeI programmes. We wIII aIso endeavour to mInImIse the
negatIve Impact oI humanItarIan assIstance, seekIng to avoId Iong term beneIIcIary
dependence upon externaI aId.
9. We hoId ourseIves accountabIe to both those we seek to assIst and those Irom whom we
accept resources
We oIten act as an InstItutIonaI IInk In the partnershIp between those who wIsh to assIst and
those who need assIstance durIng dIsasters. We thereIore hoId ourseIves accountabIe to
both constItuencIes. AII our deaIIngs wIth donors and beneIIcIarIes shaII reIIect an attItude
oI openness and transparency. We recognIse the need to report on our actIvItIes, both Irom
a IInancIaI perspectIve and the perspectIve oI eIIectIveness. We recognIse the obIIgatIon to
ensure approprIate monItorIng oI aId dIstrIbutIo ns and to carry out reguIar assessments oI
the Impact oI dIsaster assIstance. We wIII aIso seek to report, In an open IashIon, upon the
Impact oI our work, and the Iactors IImItIng or enhancIng that Impact. Our programmes wIII
be based upon hIgh standards oI proIessIonaIIsm and expertIse In order to mInImIse the
wastIng oI vaIuabIe resources.
10. n our InIormatIon, pubIIcIty and advertIsIng actIvItIes, we shaII recognIse dIsaster
vIctIms as dIgnIIIed humans, not hopeIess objects
Respect Ior the dIsaster vIctIm as an equaI partner In actIon shouId never be Iost. n our
pubIIc InIormatIon we shaII portray an objectIve Image oI the dIsaster sItuatIon where the
capacItIes and aspIratIons oI dIsaster vIctIms are hIghIIghted, and not j ust theIr
vuInerabIIItIes and Iears. WhIIe we wIII co-operate wIth the medIa In order to enhance pubIIc
response, we wIII not aIIow externaI or InternaI demands Ior pubIIcIty to take precedence
over the prIncIpIe oI maxImIsIng overaII reIIeI assIstance. We wIII avoId competIng wIth other
dIsaster response agencIes Ior medIa coverage In sItuatIons where such coverage may be to
the detrIment oI the servIce provIded to the beneIIcIarIes or to the securIty oI our staII or
the beneIIcIarIes.
C. Sphere Project HumanItarIan Charter
CRS, as a supporter oI the Sphere Project: HumanItarIan Charter and MInImum Standards In
DIsaster Response, strIves to reIIect the contents oI the project In Its emergency programs.
8eIow Is the HumanItarIan Charter contaIned In the Sphere Handbook whIch Iays out the
basIc prIncIpIes on whIch emergency programs shouId be based.
Part 1: The HumanItarIan Charter
HumanItarIan agencIes commItted to thIs Charter and to the MInImum Standards wIII aIm to
achIeve deIIned IeveIs oI servIce Ior peopIe aIIected by caIamIty or armed conIIIct, and to
promote the observance oI IundamentaI humanItarIan prIncIpIes.
The HumanItarIan Charter expresses agencIes' commItment to these prIncIpIes and to
achIevIng the MInImum Standards. ThIs commItment Is based on agencIes' apprecIatIon oI
theIr own ethIcaI obIIgatIons, and reIIects the rIghts and dutIes enshrIned In InternatIonaI
Iaw In respect oI whIch states and other partIes have estabIIshed obIIgatIons.
The Charter Is concerned wIth the most basIc requIrements Ior sustaInIng the IIves and
dIgnIty oI those aIIected by caIamIty or conIIIct. The MInImum Standards whIch IoIIow aIm to
quantIIy these requIrements wIth regard to peopIe's need Ior water, sanItatIon, nutrItIon,
Iood, sheIter and heaIth care. Taken together, the HumanItarIan Charter and the MInImum
Standards contrIbute to an operatIonaI Iramework Ior accountabIIIty In humanItarIan
assIstance eIIorts.
1 PrIncIpIes
We reaIIIrm our beIIeI In the humanItarIan ImperatIve and Its prImacy. 8y thIs we mean the
beIIeI that aII possIbIe steps shouId be taken to prevent or aIIevIate human suIIerIng arIsIng
out oI conIIIct or caIamIty, and that cIvIIIans so aIIected have a rIght to protectIon and
assIstance.
t Is on the basIs oI thIs beIIeI, reIIected In InternatIonaI humanItarIan Iaw and based on the
prIncIpIe oI humanIty, that we oIIer our servIces as humanItarIan agencIes. We wIII act In
accordance wIth the prIncIpIes oI humanIty and ImpartIaIIty, and wIth the other prIncIpIes
set out In the Code oI Conduct Ior the nternatIonaI Red Cross and Red Crescent Movement
and Non-CovernmentaI OrganIzatIons In DIsaster ReIIeI (1994).
The HumanItarIan Charter aIIIrms the IundamentaI Importance oI the IoIIowIng prIncIpIes:
1.1 The rIght to IIIe wIth dIgnIty
ThIs rIght Is reIIected In the IegaI measures concernIng the rIght to IIIe, to an adequate
standard oI IIvIng and to Ireedom Irom crueI, Inhuman or degradIng treatment or
punIshment. We understand an IndIvIduaI's rIght to IIIe to entaII the rIght to have steps
taken to preserve IIIe where It Is threatened, and a correspondIng duty on others to take
such steps. mpIIcIt In thIs Is the duty not to wIthhoId or Irustrate the provIsIon oI IIIe-
savIng assIstance. n addItIon, InternatIonaI humanItarIan Iaw makes specIIIc provIsIon Ior
assIstance to cIvIIIan popuIatIons durIng conIIIct, obIIgIng states and other partIes to agree
to the provIsIon oI humanItarIan and ImpartIaI assIstance when the cIvIIIan popuIatIon Iacks
essentIaI suppIIes.1
1.2 The dIstInctIon between combatants and non-combatants
ThIs Is the dIstInctIon whIch underpIns the 1949 Ceneva ConventIons and theIr AddItIonaI
ProtocoIs oI 1977. ThIs IundamentaI prIncIpIe has been IncreasIngIy eroded, as reIIected In
the enormousIy Increased proportIon oI cIvIIIan casuaItIes durIng the second haII oI the
twentIeth century. That InternaI conIIIct Is oIten reIerred to as 'cIvII war' must not bIInd us to
the need to dIstInguIsh between those actIveIy engaged In hostIIItIes, and cIvIIIans and
others (IncIudIng the sIck, wounded and prIsoners) who pIay no dIrect part. Non-combatants
are protected under InternatIonaI humanItarIan Iaw and are entItIed to ImmunIty Irom
attack.2
1.3 The prIncIpIe oI non-reIouIement
ThIs Is the prIncIpIe that no reIugee shaII be sent (back) to a country In whIch hIs or her IIIe
or Ireedom wouId be threatened on account oI race, reIIgIon, natIonaIIty, membershIp oI a
partIcuIar socIaI group or poIItIcaI opInIon; or where there are substantIaI grounds Ior
beIIevIng that s]he wouId be In danger oI beIng subjected to torture.3
2 RoIes and ResponsIbIIItIes
2.1 We recognIse that It Is IIrstIy through theIr own eIIorts that the basIc needs oI peopIe
aIIected by caIamIty or armed conIIIct are met, and we acknowIedge the prImary roIe and
responsIbIIIty oI the state to provIde assIstance when peopIe's capacIty to cope has been
exceeded.
2.2 nternatIonaI Iaw recognIses that those aIIected are entItIed to protectIon and
assIstance. t deIInes IegaI obIIgatIons on states or warrIng partIes to provIde such
assIstance or to aIIow It to be provIded, as weII as to prevent and reIraIn Irom behavIour that
vIoIates IundamentaI human rIghts. These rIghts and obIIgatIons are contaIned In the body
oI InternatIonaI human rIghts Iaw, InternatIonaI humanItarIan Iaw and reIugee Iaw. (See
sources IIsted beIow.)
2.3 As humanItarIan agencIes, we deIIne our roIe In reIatIon to these prImary roIes and
responsIbIIItIes. Our roIe In provIdIng humanItarIan assIstance reIIects the reaIIty that those
wIth prImary responsIbIIIty are not aIways abIe or wIIIIng to perIorm thIs roIe themseIves.
ThIs Is sometImes a matter oI capacIty. SometImes It constItutes a wIIIuI dIsregard oI
IundamentaI IegaI and ethIcaI obIIgatIons, the resuIt oI whIch Is much avoIdabIe human
suIIerIng.
2.4 The Irequent IaIIure oI warrIng partIes to respect the humanItarIan purpose oI
InterventIons has shown that the attempt to provIde assIstance In sItuatIons oI conIIIct may
potentIaIIy render cIvIIIans more vuInerabIe to attack, or may on occasIon brIng unIntended
advantage to one or more oI the warrIng partIes. We are commItted to mInImIsIng any such
adverse eIIects oI our InterventIons In so Iar as thIs Is consIstent wIth the obIIgatIons
outIIned above. t Is the obIIgatIon oI warrIng partIes to respect the humanItarIan nature oI
such InterventIons.
2.5 n reIatIon to the prIncIpIes set out above and more generaIIy, we recognIse and support
the protectIon and assIstance mandates oI the nternatIonaI CommIttee oI the Red Cross and
oI the UnIted NatIons HIgh CommIssIoner Ior ReIugees under InternatIonaI Iaw.
3 MInImum Standards
The MInImum Standards whIch IoIIow are based on agencIes' experIence oI provIdIng
humanItarIan assIstance. Though the achIevement oI the standards depends on a range oI
Iactors, many oI whIch may be beyond our controI, we commIt ourseIves to attempt
consIstentIy to achIeve them and we expect to be heId to account accordIngIy. We InvIte
other humanItarIan actors, IncIudIng states themseIves, to adopt these standards as
accepted norms. 8y adherIng to the standards set out In chapters 1 - 5 we commIt
ourseIves to make every eIIort to ensure that peopIe aIIected by dIsasters have access to at
Ieast the mInImum requIrements (water, sanItatIon, Iood, nutrItIon, sheIter and heaIth care)
to satIsIy theIr basIc rIght to IIIe wIth dIgnIty. To thIs end we wIII contInue to advocate that
governments and other partIes meet theIr obIIgatIons under InternatIonaI human rIghts Iaw,
InternatIonaI humanItarIan Iaw and reIugee Iaw.
We expect to be heId accountabIe to thIs commItment and undertake to deveIop systems Ior
accountabIIIty wIthIn our respectIve agencIes, consortIa and IederatIons. We acknowIedge
that our IundamentaI accountabIIIty must be to those we seek to assIst.
Notes
1. ArtIcIes 3 and 5 oI the UnIversaI DecIaratIon oI Human RIghts 1948; ArtIcIes 6 and 7 oI
the nternatIonaI Covenant on CIvII and PoIItIcaI RIghts 1966; common ArtIcIe 3 oI the Iour
Ceneva ConventIons oI 1949; ArtIcIes 23, 55 and 59 oI the Fourth Ceneva ConventIon;
ArtIcIes 69 to 71 oI AddItIonaI ProtocoI oI 1977; ArtIcIe 18 oI AddItIonaI ProtocoI oI 1977
as weII as other reIevant ruIes oI InternatIonaI humanItarIan Iaw; ConventIon agaInst Torture
and Other CrueI, nhuman or DegradIng Treatment or PunIshment 1984; ArtIcIes 10, 11 and
12 oI the nternatIonaI Covenant on EconomIc, SocIaI, and CuIturaI RIghts 1966; ArtIcIes 6,
37, and 24 oI the ConventIon on the RIghts oI the ChIId 1989; and eIsewhere In
InternatIonaI Iaw.
2. The dIstInctIon between combatants and non-combatants Is the basIc prIncIpIe
underIyIng InternatIonaI humanItarIan Iaw. See In partIcuIar common ArtIcIe 3 oI the Iour
Ceneva ConventIons oI 1949 and ArtIcIe 48 oI AddItIonaI ProtocoI oI 1977. See aIso ArtIcIe
38 oI the ConventIon on the RIghts oI the ChIId.
3. ArtIcIe 33 oI the ConventIon on the Status oI ReIugees 1951; ArtIcIe 3 oI the ConventIon
agaInst Torture and Other CrueI, nhuman or DegradIng Treatment or PunIshment 1984;
ArtIcIe 22 oI the ConventIon on the RIghts oI the ChIId 1989.
Sources
The IoIIowIng Instruments InIorm thIs Charter:
UnIversaI DecIaratIon oI Human RIghts 1948.
nternatIonaI Covenant on CIvII and PoIItIcaI RIghts 1966.
nternatIonaI Covenant on EconomIc, SocIaI and CuIturaI RIghts 1966.
The Iour Ceneva ConventIons oI 1949 and theIr two AddItIonaI ProtocoIs oI 1977.
ConventIon on the Status oI ReIugees 1951 and the ProtocoI reIatIng to the Status oI
ReIugees 1967.
ConventIon agaInst Torture and Other CrueI, nhuman or DegradIng Treatment or
PunIshment 1984.
ConventIon on the PreventIon and PunIshment oI the CrIme oI CenocIde 1948.
ConventIon on the RIghts oI the ChIId 1989.
ConventIon on the EIImInatIon oI AII Forms oI DIscrImInatIon AgaInst Women 1979.
CuIdIng PrIncIpIes on nternaI DIspIacement 1998.
D. nternatIonaI Law nstruments and Cround
RuIes Ior HumanItarIan AId In ConIIIct
SItuatIons
A broad spectrum oI InternatIonaI Iaw Instruments, such as the UnIversaI DecIaratIon oI
Human RIghts, exIst that are desIgned to protect the rIghts and dIgnIty oI human beIngs.
Some oI these Instruments, such as nternatIonaI HumanItarIan Law, are desIgned to protect
rIghts specIIIcaIIy In conIIIct sItuatIons. These Iaw Instruments are sometImes used In
conIIIct sItuatIons as a basIs Ior "ground ruIes" Ior the conduct oI hostIIItIes and the conduct
oI humanItarIan actIon. Cround ruIes have been deveIoped In pIaces such as Sudan and
LIberIa as an attempt to estabIIsh a common understandIng between warrIng partIes and
humanItarIan actors on the rIghts oI cIvIIIan popuIatIons to assIstance and protectIon and
the responsIbIIItIes oI warrIng partIes and humanItarIan actors to provIde assIstance and
protectIon.
The InternatIonaI Iaw Instruments reIerenced In Annex C are those most reIevant to
humanItarIan work. FuII texts oI these Instruments can be Iound on the Internet. ExampIes
oI ground ruIes can be Iound on the CRS Intranet sIte (Overseas
OperatIons>PQSD>Emergency Response).
E. CRS Emergency Preparedness & Response
Program QuaIIty Statements
CeneraI QuaIIty Statements Ior Overseas OperatIons
ExceIIent CRS emergency programs:
1. 8ase programmIng decIsIons and poIIcIes prImarIIy on the best Interests oI the aIIected
popuIatIon.
2. Are based on an assessment oI the justIce Issues.
3. Are based on anaIysIs oI and actIon to address root causes.
4. ProvIde tImeIy response to the urgent needs oI the aIIected popuIatIon.
5. Target the most vuInerabIe.
6. Ensure that there Is IegItImate representatIon oI the target popuIatIon and that they have
a voIce In and are represented throughout the pIannIng, ImpIementatIon and evaIuatIon
oI actIvItIes.
7. Are carrIed out at aII stages wIth IocaI partners, based on anaIysIs oI theIr capacIty,
prIncIpIes and poIIcIes.
8. DeveIop IocaI partners' capacIty to mItIgate and respond to emergencIes prIor to
emergency events (e.g., preparedness).
9. 8uIId on the exIstIng strengths oI IocaI communItIes and partners.
10. Seek to reduce Inter-group tensIons and strengthen connectors between dIvIded groups.
11. ntegrate peace-buIIdIng approaches where approprIate.
12. Are pIanned and ImpIemented In coordInatIon wIth other agencIes
13. Are gender responsIve.
14. Are managed In accordance wIth the emergency pIannIng cycIe.
15. Are specIIIcaIIy adapted to each phase oI the emergency.
16. Are desIgned wIth an expIIcIt transItIon]exIt strategy, based on an assessment oI current
needs, and bear In mInd communIty copIng mechanIsms.
17. Demonstrate technIcaI expertIse.
18. Use measurabIe IndIcators to demonstrate posItIve resuIts.
QuaIIty Statement Ior SecurIty
VIsIon
CRS mInImIzes the rIsk oI harm to aII staII by ImpIementIng comprehensIve securIty
procedures. CRS aIso seeks to protect materIaI resources (commodItIes, equIpment and
buIIdIngs). CRS provIdes IundIng necessary to meet staII securIty needs.
PrIncIpIe
CRS takes aII reasonabIe steps to ensure staII securIty and weII-beIng. CRS recognIzes that
our work oIten pIaces great demands on staII In condItIons oI compIexIty and rIsk. We take
aII reasonabIe steps to ensure the securIty and weII-beIng oI staII and theIr IamIIIes.
QuaIIty Statement Ior Emergency StaIIIng
VIsIon
The human resources necessary to respond to an emergency are IdentIIIed and avaIIabIe.
HR systems are In pIace to expedIte actIon. Emergency staII depth and breadth Is
strengthened and maIntaIned In order to be prepared. ThIs readIness enabIes CRS to serve
the greatest needs oI the poor and the vuInerabIe durIng the emergency and the transItIon
perIod and provIdes the hIghest program quaIIty possIbIe.
PrIncIpIes
n order to reaIIze thIs vIsIon, the approach used Is In partnershIp between the IIeId and HQ.
ThIs aIIIance keeps promInent the needs oI the popuIatIons aIIected by the emergency.
DecIsIons and communIcatIons take pIace wIth sensItIvIty to the exIstIng roIe oI IIeId and HQ
staII, but aIso wIth a unIIIed vIsIon, understandIng and commItment to the needs oI the
emergency. ExIstIng Agency and HR poIIcIes and procedures are Iactored Into the process.
QuaIIty Statement Ior StaII Care
VIsIon
CRS ensures that It has systems to protect the IIIe and dIgnIty oI InternatIonaI, natIonaI,
IocaI hIre, and seconded staII workIng In emergencIes and wIII meet basIc envIronmentaI
needs whIch encompass both physIcaI needs (potabIe water, secure housIng, personaI
securIty) and emotIonaI and mentaI needs (good management practIces, supportIve teamIng,
comIortabIe IIvIng and workIng condItIons, occasIonaI recreatIon actIvItIes). WIth these
systems In pIace, emergency staII wIII be enabIed to Iocus on provIdIng quaIIty servIces to
the popuIatIons aIIected by these dIsasters.
PrIncIpIe
CRS hoIds the prIncIpIes oI equIty and parIty In treatment oI aII staII across regIons, wIthIn
regIons and wIthIn countrIes as to be oI great Importance. n addItIon, CRS Is mIndIuI oI the
Impact that decIsIons on beneIIts have on aII staII and make those decIsIons aIter great
reIIectIon.
QuaIIty Statement Ior OrIentatIon, TraInIng and DebrIeIIng
VIsIon
AII peopIe hIred by CRS to respond to emergencIes have the proIessIonaI knowIedge, skIIIs
and attItudes to carry out Its' mIssIon. ThIs appIIes to InternatIonaI staII, natIonaI staII,
headquarters staII, IocaI hIres, and persons seconded to CRS.
PrIncIpIes
CRS recognIzes orIentatIon, traInIng and debrIeIIng as key components oI hIgh-quaIIty
emergency preparedness and response. Those actIvItIes are consIstent wIth CRS'
commItment to respect the dIgnIty and equaIIty oI the human person as weII as the dIgnIty
oI work. CRS provIdes approprIate orIentatIon, traInIng and debrIeIIng opportunItIes to
staII. ThIs eIIort requIres partnershIp between IIeId oIIIces, PQSD]ERT, MQSD and HR.
QuaIIty Statement on Procurement
VIsIon
Procurement Is essentIaI to staII securIty, eIIIcIent and eIIectIve admInIstratIon and
management, and the IntegrIty and quaIIty oI exceIIent emergency programs.
QuaIIty Statement Ior MedIa
RecognIzIng the Important roIe oI medIa In advocatIng on behaII oI those In need, educatIng
the US popuIace, strengthenIng the agency's Image In host countrIes and raIsIng Iunds, CRS
actIveIy pursues medIa outIets oI aII Iorms to beneIIt the agency, the US popuIace and those
we serve. CRS medIa eIIorts wIII, above aII, strIve to convey the IuII compIexIty oI
emergency sItuatIons and to protect the human dIgnIty oI the dIsaster aIIected popuIatIon.
CRS wIII accompIIsh thIs goaI by deIInIng and advancIng a coherent and Integrated medIa
strategy. ThIs strategy wIII outIIne the roIes and responsIbIIItIes oI IndIvIduaIs at IIeId and
HQ IeveIs, and provIde traInIng to ensure a consIstent agency-wIde understandIng oI the
goaIs and objectIves oI CRS medIa reIatIons.
F. CRS Emergency ProposaI Format
CRS emergency proposaIs shouId IoIIow the outIIne beIow. CRS proposaIs Ior submIttaI to a
pubIIc donor shouId IoIIow the Iormat requIred by the donor.
A. Project ProIIIe
1. Project TItIe:
2. Project Number:
3. SPP Program Area:
4. DIrect PartIcIpants (peopIe who dIrectIy beneIIt Irom the project) by
Number and ProIIIe (sex, ethnIc group, occupatIonaI group, age, etc.):
5. Project TImeIrame (perIod oI CRS InvoIvement onIy):
a. Years]Months DuratIon:
b. AntIcIpated StartIng Date:
c. AntIcIpated CompIetIon Date:
6. FundIng (U.S. DoIIars):
a. TotaI Project Cost:
b. Amount Requested Irom CRS:
c. AnnuaI 8udget Request Irom CRS:
d. Amount ContrIbuted by Other Donor(s) n-kInd or Cash
(specIIyIng amount per donor):
7. Partner(s):
8. EvaIuatIon ScheduIe (dates and types oI evaIuatIons II pIanned):
8. Project Summary (maxImum oI one page)
C. Nature oI Emergency]ProbIem dentIIIcatIon
1. Nature oI the Emergency
2. LocatIon
3. AIIected PopuIatIon (totaI numbers and descrIptIon oI current status, I.e., number
dIspIaced, kIIIed, Injured, etc.; dIsaggregated by gender and age whenever
possIbIe)
4. SIgnIIIcant characterIstIcs oI the aIIected popuIatIon (socIo-economIc or other
characterIstIcs that shouId be consIdered In program response IncIudIng pre-
crIsIs demographIc InIormatIon, current copIng mechanIsms)
5. TargetIng mechanIsm appIIed In the response (has a gender assessment been
compIeted and the resuIts Incorporated Into the anaIysIs and desIgn oI the
responseZ)
6. PhysIcaI and InIrastructure damage (Iand, crops, IIvestock, buIIdIngs, water, etc.).
Has an envIronmentaI Impact assessment been compIeted and the resuIts
Incorporated Into the anaIysIs and desIgn oI the responseZ)
7. How have needs been IdentIIIed (InIormatIon sources, data coIIected, etc.)
8. How are other actors respondIngZ (see Cap dentIIIcatIon Chart In Annex H Ior
reIerence)
D. Project DesIgn (reIer to the CRS Project ProposaI CuIdance Ior detaIIs on deveIopIng
the IuII project desIgn)
1. CoaI
2. ObjectIves
3. TargetIng and SeIectIon CrIterIa
4. ndIcators and MonItorIng System
5. mpIementatIon pIan, IncIudIng a detaIIed caIendar oI ImpIementatIon and the
proposed transItIon]exIt strategy
NOTE: nternatIonaI standards shouId be noted throughout the document and
justIIIcatIon shouId be provIded II InternatIonaI standards are not upheId (Sphere
Handbook, UN standards, etc.)
E. Project OrganIzatIonaI Structure and StaIIIng
1. Key staII posItIons and responsIbIIItIes
2. AssIstance requIred In earIy start up, on-the-job traInIng needs (TDYs, ERT
technIcaI assIstance, etc.)
F. CapacIty 8uIIdIng and CommunIty PartIcIpatIon
1. Partners In ImpIementIng the project
a. ResponsIbIIItIes In the project
b. CapacItIes and traInIng needs
2. CommunIty PartIcIpatIon
a. CapacItIes and vuInerabIIItIes assessment
b. RoIes and responsIbIIItIes Ior project ImpIementatIon
C. Project FeasIbIIIty
1. AvaIIabIIIty oI Inputs to meet ImmedIate needs
2. Access to aIIected popuIatIons
3. SecurIty assessment
4. SuIIIcIent communIcatIons (wIthIn country, to regIonaI oIIIce, to HQ, etc.)
5. Access to ports, warehouses, roads, transport, etc.
6. LogIstIcs capacIty oI CRS and partner(s)
7. MaterIaI resources (AvaIIabIe IocaIIyZ Can they be accessed when needed, In the
needed quantIty and oI the requIred quaIItyZ)
H. PotentIaI NegatIve mpact
1. AnaIysIs oI possIbIe beneIIts and harm reIated to the project ImpIementatIon (Do
No Harm anaIysIs)
. CRS ActIon to Date
1. CommItments (doIIar, tonnage, non-Iood Items, etc.)
2. Number oI project partIcIpants
3. Current staIIIng IeveIs, CRS and partners
4. CoordInatIon wIth other actors
5. Contact wIth news medIa
]. PoIIcy]Advocacy and CIobaI SoIIdarIty
1. Current poIIcy, advocacy or gIobaI soIIdarIty Issues currentIy assocIated wIth thIs
project
2. PotentIaI Iuture poIIcy, advocacy or gIobaI soIIdarIty Issues to be raIsed wIth the
approprIate HQ departments regardIng thIs project.
K. 8udget
1. DetaIIed IIne Items wIth account codes
C. TechnIcaI RevIew Format
ThIs technIcaI revIew Iormat Is utIIIzed by the Emergency Response Team to revIew
emergency proposaIs. t Is recommended that regIons utIIIze thIs or a modIIIed Iormat Ior
regIonaI technIcaI revIews oI emergency proposaIs. The Iormat Is based on the CRS Project
ProposaI CuIdance and the Sphere Project: HumanItarIan Charter and MInImum Standards In
DIsaster Response.
Emergency ProposaI TechnIcaI RevIew
Country Program:
Project TItIe:
RevIewer:
Date ReceIved by RevIewer:
Date RevIew Sent 8ack to Country Program:
1. Comment on the probIem IdentIIIcatIon and anaIysIs.
A) Was a proper assessment conducted (see the CRS Emergency Preparedness and
Response Handbook and the Sphere Handbook Ior guIdance)Z
8) s the probIem stated cIearIy and supported by adequate and up-to-date data or
evIdenceZ
C) Are root causes, scope and consequences oI the probIem statedZ
D) s It cIear who the project partIcIpants are and theIr approprIateness gIven the probIem
statementZ
E) s It cIear how project partIcIpants were IdentIIIed and seIectedZ
F) s the number oI project partIcIpants adequate gIven the project InvestmentZ
C) Have partIcIpants been InvoIved In IdentIIyIng the probIem and workIng out soIutIonsZ
H) Have resuIts oI the needs assessment and project pIans been dIscussed wIth other
reIevant actorsZ Have project actIvItIes been adequateIy coordInated wIth the
government and]or other humanItarIan actorsZ
2. Comment on the project desIgn.
A) Are there IInkages and a IogIcaI IIow between the probIem statement, goaIs, objectIves,
strategIes and actIvItIesZ
8) Does the project desIgn reIIect the CRS Program QuaIIty Statements Ior Emergency
Preparedness and ResponseZ
C) Are the objectIves SMART (specIIIc, measurabIe, attaInabIe, reIevant and tIme-bound)
and are they output-orIentedZ
D) Have the objectIves been deveIoped wIth a reaIIstIc pIan Ior measurement and reportIng
over the IIIe oI the projectZ Do the objectIves meet the MInImum Standards oI the
Sphere Handbook Ior the sectors addressedZ
E) s the ImpIementatIon scheduIe reaIIstIc and achIevabIeZ
F) Has a harm-beneIIt anaIysIs been conducted and project actIvItIes desIgned to ensure
that the project does not contrIbute to exacerbatIng or creatIng tensIons
among]between communItIesZ Have consIderatIons been gIven to how project actIvItIes
can contrIbute to buIIdIng peace]strengthenIng communItIesZ
C) Have gender Issues been taken Into consIderatIon and Incorporated Into project desIgnZ
H) I appIIcabIe, have protectIon Issues been taken Into consIderatIonZ Have
advocacy]poIIcy and]or gIobaI soIIdarIty Issues been expIored and addressedZ
) Does the project Incorporate recommendatIons oI past evaIuatIons oI sImIIar projectsZ
]) Have Impact IndIcators been IdentIIIed whIch are dIrectIy reIated to and measure aII the
project objectIvesZ
K) Have IndIcators been created that are dIrect, dIsaggregated (by gender and by age where
IeasIbIe), practIcaI, reIIabIe, unIdImensIonaI, tImeIy and cost-eIIIcIentZ
L) For each IndIcator, has the data source, coIIectIon method and coIIectIon Irequency been
IdentIIIed whIch Is IeasIbIe and wIthIn the organIzatIon's capacItyZ Has a responsIbIe
party been named Ior each processZ
M) Are aII InIormatIon needs oI aII stakehoIders metZ
3. Comment on the monItorIng and evaIuatIon system.
A) Do IIsted procedures IncIude a pIan Ior data anaIysIs and InIormatIon dIssemInatIon that
wIII Iead to Improved decIsIon-makIng and program managementZ
8) Does the project reIer to Sphere Handbook key IndIcators approprIate to specIIIc sectoraI
areas addressedZ
C) Has a system been estabIIshed that IncIudes pIans Ior coIIectIon oI baseIIne InIormatIon,
monItorIng InIormatIon , mId-stream evaIuatIon Ior Iengthy projects and an evaIuatIve
IoIIow-upZ
D) From the proposaI, does It appear that partIcIpants have been or wIII be InvoIved In the
IeasIbIIIty study, baseIIne study, or data coIIectIon and anaIysIsZ Are PRA or other
partIcIpatory assessment methodoIogIes envIsIoned II approprIate Ior the project sIze,
scope and duratIonZ
4. Comment on the project organIzatIonaI structure and staIIIng.
A) Does the project IncIude enough human resources oI adequate quaIIty to ensure
successIuI project ImpIementatIonZ
8) Does the organIzatIonaI chart adequateIy support the project actIvItIes envIsIonedZ
5. Comment on capacIty buIIdIng and communIty partIcIpatIon.
A) Do the partners InvoIved support partIcIpatory decIsIon-makIng, have strong grassroots
IInks, share CRS vaIues and goaIs, demonstrate IeadershIp, demonstrate wIIIIngness to
dIaIogueZ
8) Do the partners have adequate skIIIs to Ioster partIcIpant partIcIpatIonZ
C) s the project sIze commensurate wIth the partner's management and technIcaI capacItyZ
D) WIII the project support or enhance exIstIng or pIanned InstItutIon-buIIdIng actIvItIes
wIth the partnerZ
E) I appIIcabIe, are there pIans Ior strengthenIng the IundraIsIng capacIty oI the partner or
assIstIng them to dIversIIy IundIngZ
F) WIII partIcIpants contrIbute Iabor, other In-kInd contrIbutIons or cash Ior
ImpIementatIonZ
C) Are women ImpIIcated In decIsIon-makIng, pIannIng, ImpIementatIon and evaIuatIon oI
the projectZ I not, does the project expIaIn whyZ
6. Comment on project IeasIbIIIty and sustaInabIIIty.
A) I approprIate, are IInancIaI and economIc anaIyses IncIuded and are they correctIy
caIcuIatedZ
8) I appIIcabIe, Is the sustaInabIIIty strategy dIscussed In the proposaI oI good quaIIty and
approprIate to the sectoraI nature oI the projectZ
7. Comment on the project's potentIaI negatIve Impact.
A) I appIIcabIe, has an envIronmentaI revIew been doneZ
8) I possIbIe negatIve Impact on the envIronment Is antIcIpated, are there adequate actIons
pIanned to mItIgate thIsZ
C) Does the proposaI adequateIy dIscuss any other potentIaI negatIve Impact such as
worsenIng conIIIct, IncreasIng tensIons In groups, worsenIng gender InequaIIty, or
IncreasIng dependencyZ
8. Comment on the project's budget sectIon.
A) Does the budget cover aII project actIvItIesZ
8) Are the percentages oI costs dIrected to admInIstratIon and dIrect servIce deIIvery
reasonabIeZ
C) Do budget notes support IIguresZ
D) s there an adequate budget IIne and resource aIIocatIon Ior monItorIng and evaIuatIonZ
E) s there an adequate budget IIne and resource aIIocatIon Ior technIcaI supportZ
9. LIst the maIn project strengths.
10. LIst the maIn project weaknesses.
11. CIve an overaII project ratIng.
A = Approved (Project meets aII conceptuaI, desIgn, technIcaI and methodoIogIcaI
crIterIa)
8 = CondItIonaIIy Approved (Changes requIred are mInor and do not InvoIve crItIcaI
Issues such as concept, technoIogy, desIgn or methodoIogy)
C = Amend]RewrIte (Project Is potentIaIIy IeasIbIe, but requIres substantIaI
modIIIcatIon oI desIgn, technoIogy, and]or methodoIogy)
D = Rejected (Project contaIns major, IrremedIabIe IIaws or does not quaIIIy as an
emergency project)
12. 8ased on the above revIew, IIst the three most Important, specIIIc recommendatIons to
be consIdered In the project's desIgn or revIsIon.
H. Cap dentIIIcatIon Chart
NEEDS
WHO
CRS
COVERNMENT
MNSTRES
UN ACENCES
(Ex. WFP,
UNHCR, ETC.)
NCO 1
NCO 2
F
O
O
D

N
O
N
-
F
O
O
D

T
E
M
S

W
A
T
E
R
]
S
A
N

T
A
T

O
N

S
E
C
U
R

T
Y
]
P
R
O
T
E
C
T

O
N

S
H
E
L
T
E
R

C
O
M
M
U
N

T
Y

N
-
F
R
A
S
T
R
U
C
T
U
R
E

M
E
D

N
E
S

H
E
A
L
T
H

. C CuIdeIInes Ior Major EmergencIes
CARTAS NTERNATONALS (C)
CUDNC VALUES, PRNCPLES WORKNC STRUCTURES and
MECHANSMS Ior RESPONSE to MA]OR EMERCENCES
Approved by ExCo, ]une 14, 2001
8ACKCROUND
n an eIIort to Improve the ConIederatIon's response to major emergencIes and to make It
more IncIusIve and coIIaboratIve, the 1999 ExecutIve CommIttee (ExCo) revIewed and
endorsed guIdeIInes Ior new mechanIsms prepared by the C CeneraI SecretarIat and
descrIbed In part 2 oI thIs document. The ExCo aIso Iormed a task Iorce (consIstIng oI each
C regIon's representatIve, the reIevant C SecretarIat staII, and chaIred by the C Secretary
CeneraI) to deveIop detaIIs oI the mechanIsms Ior submIssIon to Its ]une 2001 meetIng. ThIs
document - as amended and approved by the ExCo - wIII be dIstrIbuted to aII C member
organIzatIons (C MOs) so that they can IoIIow Its provIsIons.
t shouId be noted that even aIter the ExCo's approvaI, thIs document wIII remaIn a workIng
document aIIowIng the needed changes over tIme (provIded such changes are approved by
the nternatIonaI CooperatIon CommIttee Ior EmergencIes - CC).
I) Major DIsaster DeIInItIon
n the context oI thIs document, a major dIsaster Is deIIned as a sItuatIon where there Is a
substantIaI Ioss oI IIIe, great human suIIerIng and dIstress, and Iarge-scaIe materIaI damage
IncIudIng damage to the envIronment. t Is a sItuatIon wIth whIch the aIIected member
cannot cope and needs assIstance oI others.
II) OrganIzatIon oI the Document
The document Is dIvIded Into two parts - guIdIng vaIues and prIncIpIes, and C workIng
structures Ior respondIng to major emergencIes. The orIgInaI document Is In EngIIsh wIth
transIatIons Into French and SpanIsh.
1. CUDNC VALUES and PRNCPLES
1. 1 MoraI Mandate
a) C as a gIobaI network oI CathoIIc humanItarIan organIzatIons has a moraI mandate to
respond to the needs oI vIctIms oI dIsasters.
b) AII aId by a member organIzatIon must have the uphoIdIng oI human dIgnIty and
promotIon oI the poorest as Its IIrst prIorIty. t must aIso promote the response oI the IocaI
Church towards the cIvII socIety as a whoIe, whether ChrIstIan or not.
c) AII C MO are bound to uphoId the Code oI Conduct, SPHERE Project's HumanItarIan
Charter and MInImum Standards, gender equIty and other concerns.
1. 2 SoIIdarIty and MutuaIIty
a) The C ConIederatIon's adherence to ChrIstIan charIty and the CathoIIc SocIaI TeachIng
prIncIpIes oI soIIdarIty InvoIves not onIy IInance, but the accompanIment oI the Church and
CarItas, dIaIogue, advocacy, peace-buIIdIng and reconcIIIatIon, as weII as capacIty buIIdIng.
b) A prIncIpIe oI mutuaIIty wIII be honored and practIced by aII C MOs. MutuaIIty Is IInked
to soIIdarIty because It caIIs on us to recognIze and respect resources and taIents that aII C
MOs have to oIIer. When these are brought together In a concerted eIIort, the resuIt Is a
better, more eIIectIve and eIIIcIent response to those In need.
c) n sItuatIons where the CarItas and Church In the aIIected country are abIe to respond,
there may be a need Ior other C MOs to demonstrate soIIdarIty oI theIr supporters and
constItuents by beIng physIcaIIy present at the crIsIs sIte, and they shouId be granted thIs
possIbIIIty.
1. 3 SubsIdIarIty
a) AII aId by a Member OrganIzatIon to a gIven country must be based on a preIImInary
dIaIogue wIth the Member OrganIzatIon oI that country, and IoIIowed by a contInuous
exchange oI InIormatIon.
b) C wIII respect the prIncIpIe oI IocaI autonomy Ior aII actIvItIes at the IocaI IeveI whIIe, at
the same tIme, IIndIng opportunItIes Ior and heIpIng the whoIe ConIederatIon to work
together eIIectIveIy and harmonIousIy In pursuIt oI our common mIssIon.
c) C MOs are commItted to IIstenIng, accompanyIng and workIng wIth the IocaI Church and
CarItas In a spIrIt oI partnershIp. C MOs must aIways take Into account the IocaI cuIture and
other reIevant eIements.
1. 4 PartnershIp and StewardshIp
a) C reIatIonshIps at a gIobaI IeveI, especIaIIy those InvoIvIng the transIer oI resources,
must be based on mutuaI respect, trust and goodwIII. PartnershIp ImpIIes a Iong-term
commItment to agreed objectIves, based on shared vaIues, strategIes and InIormatIon. t
shouId be Iurther characterIzed by Ieedback and joInt pIannIng, a dIspIay oI transparency
and accountabIIIty on both sIdes and a genuIne openness and sensItIvIty to the others'
needs, IeeIIngs, expertIse, experIence and wIsdom.
b) C wIII steward those resources entrusted to us In an eIIIcIent and eIIectIve manner,
beIng aware that we have an obIIgatIon to behave at aII tImes In a transparent and
accountabIe way - to the poor, the Church and to one another.
2. C WORKNC STRUCTURES Ior RESPONDNC to MA]OR EMERCENCES
2. 1 ConIederatIon LeveI
The C CeneraI SecretarIat Is responsIbIe Ior the mobIIIzatIon and coordInatIon oI C MOs
response to major emergencIes, as weII as Ior the IacIIItatIon oI the IInancIaI coverage oI the
response. The nternatIonaI CooperatIon Department (CD) oI the C CeneraI SecretarIat
works cIoseIy wIth both natIonaI and regIonaI structures In undertakIng these tasks, and
InvoIves aII the reIevant departments oI the C CeneraI SecretarIat (RegIonaI Desks, CIobaI
ssues [Advocacy] and CommunIcatIons) In respondIng to major emergencIes.
2. 2 RegIonaI LeveI
C regIons work cIoseIy wIth theIr IndIvIduaI members In respondIng to major emergencIes
so that each regIon Interacts wIth the CeneraI SecretarIat oI C In a coordInated IashIon.
AIthough aII C regIons are deveIopIng theIr own workIng structures Ior respondIng to
dIsasters In the spIrIt oI regIonaIIzatIon outIIned by the 16
th
C CeneraI AssembIy, they are
hereby urged to acceIerate thIs process In order to maxImIze the use oI regIonaI resources,
both human and materIaI.
2. 3 NTERNATONAL COOPERATON COMMTTEE FOR EMERCENCES (CC)
CC Is an Instrument oI the ConIederatIon deaIIng wIth the ConIederatIon's approach to
major emergencIes. t crItIcaIIy revIews mechanIsms put In pIace by the C CeneraI
SecretarIat In respondIng to major emergencIes and Is an arbItrator In case oI dIsputes.
2. 3. 1 PURPOSE oI CC
a) To make the ConIederatIon's response more IncIusIve and representatIve,
b) To Iocus on Issues crItIcaI to an eIIectIve response to major emergencIes, I.e.,
to revIew and advIse on major emergency response approaches and,
c) To act as an arbItrator In case oI dIscord,
d) To Improve the quaIIty oI C emergency programs by promotIng a wIder sense oI
ownershIp and understandIng oI standards InvoIved In the C response to major
emergencIes, e.g. C Common FInancIaI Standards and "Sphere",
e) PreparatIon Ior and IoIIow-up oI deterIoratIng sItuatIons whIch couId become
serIous crIses.
2. 3. 2 MANDATE oI CC
The mandate Is Issued by the ExCo Ior a three-year perIod whIch can be renewed.
2. 3. 3 COMPOSTON oI CC
a) A suItabIy quaIIIIed representatIve Irom each regIon oI the ConIederatIon
chosen by regIonaI commIssIons, where a gender baIance shouId be respected,
b) The C Secretary CeneraI, and
c) ReIevant staII Irom the C CeneraI SecretarIat.
Note: The proIIIe and IunctIonIng oI the CC shouId be based on the ExCo document
"RevIewIng the WorkIng MechanIsms - ntroductIon on the WorkIng Croups and Tasks
Forces".
2. 3. 4 ORCANZATON
a) ConvocatIon oI CC and WorkIng Method
The IIrst meetIng oI CC Is convened by the C Secretary CeneraI, whIIe the subsequent ones
are convened by the C Secretary CeneraI In coIIaboratIon wIth the CC presIdent.
CC wIII be managed and work In a partIcIpatory manner keepIng CarItas partnershIp
prIncIpIes In mInd.
b) CC PresIdent
The presIdent wIII be eIected at the CC's IIrst meetIng and ratIIIed by the C 8ureau. He]she
wIII be responsIbIe Ior caIIIng oI the meetIngs (In conjunctIon wIth the C Secretary CeneraI),
preparatIon oI theIr agenda and IoIIow up, organIzatIon oI teIeconIerences etc.
c) Frequency oI CC MeetIngs and RevIews
The CC shouId meet no Iess than twIce a year durIng Its IIrst three years. However, a revIew
shouId be done aIter each pIacement oI C mechanIsms Ior respondIng to major
emergencIes durIng the InItIaI mandate. Such revIews can be aIIected through teIecons, e-
maII or meetIngs.
d) AdmInIstratIve Support
The nternatIonaI CooperatIon Department oI the C CeneraI SecretarIat provIdes
admInIstratIve support to the CommIttee.
2. 3. 5 FNANCNC oI CC
CC costs (expenses reIated to meetIngs or to hIrIng oI consuItants) wIII be covered out oI
the C budget where the approprIate provIsIons wIII have to be made.
2. 4 EMERCENCY RESPONSE SUPPORT TEAM (ERST)
2. 4. 1 DEFNTON oI ERST
ERST Is a crIsIs management mechanIsm and Its raIson d'tre Is to express the
ConIederatIon's soIIdarIty wIth the aIIected peopIe and Its IocaI member, to ensure tImeIy
and eIIectIve InItIatIon oI C ConIederatIon's response In any major emergency, and to report
on It to the network vIa the C CeneraI SecretarIat.
ERST Is a short-term operatIonaI team, whIch responds to a varIety oI needs durIng the IIrst
6 weeks oI a major emergency. t Is an Instrument oI the ConIederatIon whIch Is accountabIe
to the C Secretary CeneraI. The competency oI ERST members to do a proIessIonaI job
quIckIy Is a prImary consIderatIon In theIr appoIntment.
n consuItatIon and agreement wIth the IocaI Church In the aIIected country, there shouId
be an ERST In the InItIaI phase oI any major emergency to provIde accurate and tImeIy
InIormatIon and IacIIItate coordInated decIsIons about Iuture dIrectIon.
2. 4. 2 MANDATE oI ERST
The mandate Is IormaIIy Issued by the C Secretary CeneraI Ior a perIod oI up to 6 weeks
whIch can be renewed.
2. 4. 3 ERST TASKS
ERST's tasks vary dependIng on the type oI crIsIs, the IocaI CarItas and Church structure and
capacIty, as weII as the poIItIcaI and reIIgIous context. The "ERST Phase" (or "DeIIvery Phase")
Is characterIzed by ImmedIate response to acute needs, and It aIms, Inter aIIa, to:
a) Conduct an InItIaI assessment oI the dIsaster wIth a vIew to estabIIshIng the
response oI the ConIederatIon,
b) EstabIIsh an overvIew oI the natIonaI CarItas and Church response to date,
c) DeveIop a quIck Impact specIaI operatIons appeaI (SOA) coverIng the ImmedIate
needs,
d) Understand the IocaI Church and CarItas context and conduct such anaIysIs In sItu,
e) Prepare reguIar and comprehensIve sItuatIon reports Ior the C network, IncIudIng
a poIItIcaI and socIaI anaIysIs, and InIorm C MOs through the C CeneraI
SecretarIat,
I) ProvIde artIcIes and photos Ior medIa dIstrIbutIon and any reIevant materIaI Ior
advocacy statements, and support CarItas In receIvIng journaIIsts and medIa
representatIves.
g) Assess the capacIty oI the aIIected CarItas to respond,
h) EstabIIsh contacts wIth other agencIes (especIaIIy UN) and NCOs In the IIeId,
I) EstabIIsh contacts wIth reIevant embassIes (IncIudIng the NuncIature) and
potentIaI InstItutIonaI donor representatIves In the country,
j) DeveIop an emergency database on C MOs and other CathoIIc agencIes workIng
In the country In order to aIIow ERST the deveIopment oI an IncIusIve actIon pIan.
The InIormatIon In the database on each C MO ] CathoIIc agency In the aIIected
country shouId IncIude the IoIIowIng Items:
- preparedness IeveI or prIor experIence wIth emergencIes
- pubIIc response to theIr presence and actIvItIes
- equIpment and IogIstIcs avaIIabIIIty
- customs and tax Issues
- sateIIIte phone and Iax usage
- Internet avaIIabIIIty.
k) nItIate dIscussIon wIth the IocaI Church and CarItas about the next actIons to be
taken, and agree on recommendatIons Ior the Iuture course oI C ConIederatIon's
support, IncIudIng the possIbIe IormatIon oI a support and coordInatIng mechanIsm
such as SoIIdarIty Team Ior Emergency PartnershIp (STEP), LIaIson Agency,
technIcaI assIstance, consuItancy etc.
I) PartIcIpate In C-organIzed teIeconIerences concernIng the dIsaster,
m) PerIorm a seII-evaIuatIon at the end oI the mIssIon II approprIate,
n) Assess IogIstIcaI needs.
AII the above tasks wIII be carrIed out In conjunctIon wIth the IocaI CarItas In the spIrIt oI
partnershIp and mutuaIIty.
2. 4. 4 ACTVATON oI ERST
AIter receIvIng InIormatIon about an occurrIng major dIsaster Irom the CarItas In the
aIIected country, other C MOs, or the medIa, the C Secretary CeneraI - aIter havIng
contacted the CarItas In the aIIected country - wIII have the rIght to send a ConIederatIon
representatIve as a sIgn oI soIIdarIty. AIter a Iurther consuItatIon wIth the CarItas and IocaI
Church In the aIIected country, the C Secretary CeneraI wIII decIde whether to actIvate an
ERST mIssIon.
The request Ior ERST can aIso be communIcated to the C Secretary CeneraI by any CarItas
member or regIonaI structure wIthIn the ConIederatIon, or any emergency structure wIthIn
the C network. CrIterIa Ior the actIvatIon oI ERST IncIude:
a) MagnItude oI dIsaster
b) PoIItIcaI and reIIgIous context
c) Church or CarItas context
d) Church or CarItas capacIty
e) ConstItuencIes' demands In countrIes oI C MOs
I) CompIementarIty wIth other organIzatIons InvoIved.
The decIsIon to actIvate ERST Is taken by the C Secretary CeneraI or the oIIIcer In charge at
the C CeneraI SecretarIat - In consuItatIon wIth the CarItas In the aIIected country - wIthIn
eIght (8) hours oI the orIgInaI request or beIng suItabIy InIormed.
The composItIon oI ERST Is based on a teIephone conversatIon among the C Secretary
CeneraI, the oIIIcer In charge or the reIevant C oIIIcIaI and the organIzatIons that are to
partIcIpate In most ERST mIssIons, vIz. CarItas In the aIIected country and]or seIected C
MOs present In the aIIected country, the reIevant regIonaI representatIve, the Emergency
Task Force (ETF) oI CarItas Europa and CRS. Members oI the team shouId do theIr utmost to
reach the aIIected area as soon as possIbIe (wIthIn 48 hours oI the decIared emergency, II
IeasIbIe ).
2. 4.5 SELECTON CRTERA Ior ERST Members
As the ERST Is a short-term operatIonaI team, It shouId be made up oI proIessIonaIs
possessIng the requIred technIcaI expertIse, knowIedge oI the country or regIon, and
reIIgIous sensIbIIIty combIned wIth the knowIedge oI the C ConIederatIon and the Church.
deaIIy, the team shouId be gender-baIanced and have members wIth the IoIIowIng skIIIs:
a) Program management skIIIs wIth extensIve emergency experIence
b) ReIevant technIcaI emergency skIIIs
c) Cood PR and Inter-personaI skIIIs
d) CommunIcatIons and computer skIIIs
e) Awareness oI CarItas partnershIp prIncIpIes.
I) FamIIIarIty wIth the IocaI context and cuIture
g) ReIIgIous sensIbIIIty and knowIedge oI the CathoIIc Church and Its roIe In
emergencIes and deveIopment
h) ApproprIate Ianguage skIIIs
I) Freedom oI movement (VIsas, passport, vaccInatIons etc.).
2. 4. 6 COMPOSTON oI ERST
The composItIon and depIoyment oI an ERST Is conIIrmed by the C CeneraI Secretary durIng
a teIecon InItIated by the C CeneraI SecretarIat wIth the C member organIzatIon In the
aIIected country, ETF oI CarItas Europa, CRS, and the reIevant regIonaI coordInators or
members. At the same tIme, the C Secretary CeneraI may nomInate a C ConIederatIon
representatIve on the ERST. The representatIve may not be necessarIIy an empIoyee oI the
CeneraI SecretarIat oI C.
n thIs context, C regIons shouId deveIop theIr own databases oI expertIse and keep them
current. The experts Ior ERST shouId be chosen by the regIon, be empIoyees oI a C MO, and
be avaIIabIe Ior ImmedIate departure.
t Is ImperatIve that the CarItas and]or Church In the aIIected country be represented on
ERST. I not, the IocaI member organIzatIon or the 8Ishops' ConIerence shouId nomInate a
contact person to deaI wIth ERST.
2. 4. 7 ORCANZATON oI ERST
a) ERST Leader
The ERST Leader must be IdentIIIed and appoInted by the C Secretary CeneraI beIore the
team reaches the dIsaster area or the CarItas In the aIIected country. The appoIntment
shouId be done on the basIs oI experIence and knowIedge avaIIabIe to the C CeneraI
SecretarIat. The ERST Leader Is responsIbIe Ior the dIvIsIon oI Iabor wIthIn the team,
adherence to deadIInes etc. and wIII act In a partIcIpatory manner.
b) ReportIng ReIatIonshIp
The Ieader Is uItImateIy accountabIe to the C Secretary CeneraI who wIII ensure proper
reportIng to aII C MO. The ERST members report to the Leader, though a partIcIpatory
approach to management shouId be used.
2 . 4. 8 FNANCNC oI ERST
A Iund wIII be estabIIshed at the C CeneraI SecretarIat to support ERSTs. The Iund wIII be
repIenIshed Irom reIevant subsequent SOAs. ContrIbutIons Irom IundIng InstItutIons wIII be
soIIcIted through the approprIate C member organIzatIons.
2. 4. 9 EVALUATON oI ERST
The CC wIII revIew ERST's perIormance and assess the ERST's seII-evaIuatIon where
appIIcabIe.
2. 4. 10 PREPARATORY PHASE oI ERST
a) 8rIeIIng
The ERST wIII be brIeIed on the context oI the Church and CarItas In the aIIected country.
Such brIeIIng couId be provIded by the aIIected C MO, the C CeneraI SecretarIat, Iormer C
"IIaIson agencIes" (II any), through a teIecon wIth knowIedgeabIe sources or through a
combInatIon oI these.
b) Standards
n order to ensure a common methodoIogy, to respect InternatIonaI standards oI quaIIty and
voIume oI assIstance, and do no harm to exacerbate conIIIct, ERST members shouId be
IamIIIar wIth humanItarIan standards In generaI, and the Sphere Handbook In partIcuIar.
Each ERST member shouId have the Sphere Handbook on the mIssIon and IdeaIIy be traIned
In Its use. Above aII, In usIng standards, concerns about human dIgnIty, justIce and
soIIdarIty shouId be addressed.
c) VIsIbIIIty tems
The ERST shouId carry and use "CarItas Network" IdentIIIcatIon Items such as T-shIrts, arm
bands, stIckers, hats etc., as Iong as thIs does not oIIend IocaI sensIbIIItIes as per
judgement oI the IocaI CarItas. The recommendatIon as to the potentIaI sensIbIIItIes and
rIsks Ior ERST InvoIved shouId be the resuIt oI a poIItIcaI assessment and understandIng oI
the country In questIon, to be perIormed by the respectIve C regIon and IncIuded In the
brIeIIng oI ERST.
2. 5 FOLLOW-UP ON EMERCENCES
Towards the end oI the ERST's assIgnment durIng the acute phase oI a major emergency,
the IocaI Church and CarItas - In consuItatIon wIth ERST and the C CeneraI SecretarIat -
shouId decIde on the need Ior a IoIIow up support Irom the ConIederatIon. n the event
that an agreement cannot be reached durIng thIs dIaIogue, the C Secretary CeneraI takes a
decIsIon In the best Interest oI the aIIected popuIatIon aIter extensIve consuItatIons,
especIaIIy wIth the IocaI CarItas]Church. The IoIIow-up support and coordInatIng
mechanIsm can take one or a combInatIon oI the IoIIowIng Iorms:
a) Short Term ConsuItancy (technIcaI assIstance and]or capacIty buIIdIng)
b) SoIIdarIty Team Ior Emergency PartnershIp (STEP)
c) LIaIson Agency (the concept Is to be revIewed thIs year and adjusted accordIngIy)
d) PerIodIcaIIy vIsItIng C MOs
e) Other (or a combInatIon oI the above).
The seIected mechanIsm must be IIexIbIe and sImpIe, and be taIIored to IIt the
cIrcumstances oI the IndIvIduaI emergency and the IocaI CarItas sItuatIon. ThIs Is a crItIcaI
perIod Ior demonstratIng the powerIuI beneIIts oI the prIncIpIe oI mutuaIIty, and the
seIected mechanIsm shouId provIde a unIque opportunIty Ior aII C Interested members and
other CathoIIc organIzatIons to actIveIy partIcIpate In the response In a coordInated and
coIIaboratIve IashIon. The outcome oI the above mentIoned dIaIogue must ensure that the
Interested C MOs are Indeed granted thIs opportunIty. AII C MOs are then expected to
respect the mechanIsm.
2. 5. 1 SOLDARTY TEAM Ior EMERCENCY PARTNERSHP (STEP)
n generaI, STEP shouId be an exceptIon rather than a ruIe In terms oI the ConIederatIon's
response to major emergencIes. t Is estabIIshed to IuIIIII certaIn tasks such as compIetIon
oI a Ionger-term rehabIIItatIon ] deveIopment pIan and IundIng requests, compIIance wIth
the IundIng condItIons, InstItutIonaI capacIty buIIdIng, and opportunItIes Ior expressIons oI
soIIdarIty and mutuaIIty. AIthough STEP wIII In most sItuatIons be one operatIonaI team,
there may be cases where dIIIerent C MOs take pIeces oI the overaII pIan to ImpIement as C
members rather than as IndIvIduaIs assIgned to workIng wIthIn the structure oI CarItas In
the aIIected country. Such partners wIII be expected to coordInate theIr actIvItIes cIoseIy
wIth the STEP or the IocaI CarItas.
The STEP (or at Ieast some oI Its members) shouId IdeaIIy arrIve In the aIIected country prIor
to the ERST's departure In order to ensure contInuIty through overIappIng. t Is aIso possIbIe
that some oI the ERST members may joIn the STEP.
2. 5. 2 STEP MANDATE
The mandate Is IormaIIy Issued by the C Secretary CeneraI upon the outcome oI the
dIaIogue concernIng the type oI the IoIIow up support mentIoned In Item 2.5 above Ior a
perIod oI up to 6 months whIch can be renewed.
2. 5. 3 STEP TASKS
DependIng on the cIrcumstances and especIaIIy the expressed needs oI the CarItas In the
aIIected country and C MOs concerned, STEP's tasks may IncIude the IoIIowIng:
a) To work wIth the aIIected CarItas and Church In ImpIementIng emergency and
rehabIIItatIon programs,
b) To assIst CarItas and Church In the aIIected country In the CarItas partnershIp
spIrIt In deveIopIng pIans ("Iramework oI actIvItIes") Ior the Iuture IncIudIng
strategIc, pIannIng, advocacy, reconcIIIatIon and justIce Issues. Such pIans (or theIr
components) couId be Iaunched eIther In the Iorm oI an SOA, or they couId
be submItted to IndIvIduaI C MOs Ior dIrect responsIbIIIty and IundIng,
c) To coordInate and heIp ImpIement the projects resuItIng Irom the Item "b" above,
d) To provIde reguIar InIormatIon to the varIous stakehoIders In country and to the C
MOs vIa the C CeneraI SecretarIat IncIudIng InIormatIon on aII InterventIons oI
C MOs and CathoIIc InstItutIons,
e) To assIst the IocaI CarItas and Church In staII capacIty buIIdIng and In
strengthenIng admInIstratIve structures,
I) To partIcIpate In Inter-agency coordInatIon actIvItIes,
g) To ensure the meetIng oI proIessIonaI standards e.g. C Common FInancIaI
Standards, Code oI Conduct, and Sphere Project throughout the program,
h) To ensure donor coordInatIon IncIudIng suggestIons on approaches to InstItutIonaI
donors (based on the IocaI contacts wIth ECHO, OFDA, WFP, etc.) and others.
2. 5. 4 COMPOSTON oI STEP
a) RequIred SkIIIs
n cIose coIIaboratIon wIth the CarItas and Church In the aIIected country, the ERST wIII
IdentIIy competencIes needed Ior the STEP members dependIng on the STEP's tasks, and
prepare theIr competency proIIIes.
b) SeIectIng the Team
The competency proIIIes shouId be submItted to the C CeneraI SecretarIat Ior dIssemInatIon
to aII C MOs so that a muItI-natIonaI team couId be Iormed. NomInatIons Irom C MOs wIII
be approved by C Secretary CeneraI In consuItatIon wIth the CarItas In the aIIected country.
2. 5. 5 ORCANZATON oI STEP
a) STEP Leader
The CarItas In the aIIected country nomInates someone Irom among the seIected STEP
members who manages the team's work and to whom the other STEP members report.
b) ReportIng ReIatIonshIp
The Leader reports to the head oI the CarItas In the aIIected country.
2. 5. 6 FNANCNC oI STEP
A Iund wIII be estabIIshed at the CeneraI SecretarIat oI C to support STEP, whIch wouId be
repIenIshed Irom reIevant subsequent SOAs.
SOA ACTVTY REPORTNC
REQURED NFORMATON
1. 8rIeI overvIew oI the emergency sItuatIon.
2. Program update: Status oI each InterventIon, dIIIIcuItIes In ImpIementIng. DescrIbe the
management and coordInatIon systems used. Lessons Iearnt. PIans and prIorItIes Ior
Iuture actIons.
3. 8eneIIcIarIes - numbers reached, gender]age and type oI suppIy]servIcesZ
4. What are the IogIstIcs oI the program IncIudIng equIpment, storage, transportatIon and
customs cIearanceZ
5. What are the reIevant operatIons oI other government]NCOs]UN agencIesZ
6. nvoIvement oI CarItas In co-ordInatIon structures IncIudIng government]NCOs]UN
agencIesZ
7. MonItorIng systems used (reports, IIeId trIps, audIt, etc.).
8. A revIsed budget (II any).
9. a. FundIng status oI the SOA (pIedges vs. receIpts, spendIng rate - II InterIm report).
b. 8IIateraI contrIbutIons reIated to the dIsaster, but not channeIIed vIa the SOA
10. EvaIuatIon. Status oI pIans, tImeIrame, cost estImates.
11. Other Important consIderatIons. DescrIbe whether some oI the IoIIowIng Issues have
been Incorporated Into your programme: Cender, The Sphere MInImum Standards In
DIsaster Response, Other Issues oI sIgnIIIcance to the aIIected country.
The report shouId have a cover page wIth the IoIIowIng InIormatIon:
Name oI the organIsatIon and contact person
SOA In questIon
ReportIng perIod
]. CRS SItuatIon ReportIng Formats
. SItuatIon Update
A. Purpose
The purpose oI a "SItuatIon Update" Is to provIde succInct, tImeIy InIormatIon about "hot",
usuaIIy Iarge-scaIe emergency or ImmInent crIsIs sItuatIons, IncIudIng those envIronments
consIdered "hIgh rIsk". The sItuatIon update Is Intended to InIorm InternaI management
decIsIons on strategIc Issues regardIng CRS' presence, staII securIty, program Investment
and support, and externaI advocacy and Iund raIsIng.
8. Who SubmIts
SItuatIon Updates shouId be provIded by Country Programs In whIch sItuatIons are rapIdIy
changIng and unstabIe, and]or when the occurrence oI crItIcaI events whIch sIgnIIIcantIy
Impact vuInerabIe popuIatIons, the operatIng envIronment, and CRS' work Is more Irequent
than normaI Ior that country or area.
C. DIstrIbutIon
1. CRS]HQ (EMT, RegIonaI Team Leader. Team Leaders are responsIbIe Ior InIormIng other
departments as requested or requIred.)
2. RegIonaI DIrector
3. Emergency Response Team (HQ and NaIrobI)
4. Others as deemed approprIate: program partners, strategIc aIIIes.
D. TImIng
The emphasIs Is on tImeIIness. Updates shouId be Issued on an as-needed basIs but weekIy
at a mInImum. Over tIme, It may become approprIate to Iorego Updates and onIy submIt
SItuatIon Reports (SItreps), or the Country RepresentatIve may decIde to prepare them onIy
IncIdentaIIy when, In theIr opInIon, InIormatIon shouId be dIssemInated ImmedIateIy or more
IrequentIy than SItreps.
E. Content
The emphasIs Is on succInctness: crItIcaI new InIormatIon and key Issues-- usuaIIy reIated
to poIItIcaI]securIty condItIons, crItIcaI events, aIIected popuIatIons and theIr movements
and condItIons, staII saIety and moraIe-- that may requIre ImmedIate actIon or ImmedIate
preparatIon Ior Iuture actIon. ConIIdentIaI InIormatIon shouId be specIIIed as such.
F. Format
Updates may be sent by the Country Program through e-maII, Iax, or teIephone (when the
conversatIon Is documented by a RegIonaI team member). The author]source]date oI the
InIormatIon shouId be IndIcated.
. SItuatIon Report (STREP)
A. Purpose
The purpose oI a "SItrep" Is to provIde comprehensIve InIormatIon about and anaIysIs oI
events, condItIons, and the operatIng envIronment In emergency (or potentIaI emergency)
sItuatIons on a reguIar basIs to a wIde audIence InsIde and outsIde oI CRS. The SItrep
provIdes more detaII and InsIght Into the actuaI and potentIaI CRS response and actIvItIes,
and the responses and actIvItIes oI other agencIes. to CRS]HQ departments, program
partners, and actuaI and potentIaI donors. The sItrep InIorms InternaI management
decIsIons, IncIudIng those reIevant to programmIng, externaI advocacy, and Iund raIsIng.
8. Who SubmIts
SItreps shouId be provIded by Country Programs whIch: 1) have experIenced or are
experIencIng naturaI or man-made dIsasters to whIch CRS and]or Its partners are
respondIng, 2) have been IabeIIed as "hIgh" or "moderate" rIsk envIronments by the EMT, 3)
have been IabeIIed an "emergency" by the US Covernment and]or the UnIted NatIons.
C. DIstrIbutIon
1. CRS]HQ (EMT, RegIonaI Team Leader, ERT HQ and NaIrobI)
2. RegIonaI DIrector
3. CarItas nternatIonaIIs and CDSE partners as appIIcabIe
4. ReIevant strategIc aIIIes, IocaI and InternatIonaI partners, and donors
5. Other externaI Interested partIes as approprIate (eg. nteractIon, CVA, etc.)
D. TImIng
MonthIy at a mInImum durIng the acute phase oI the crIsIs, and more IrequentIy as deemed
approprIate by the Country RepresentatIve or as necessItated by InIormatIon demands Irom
other parts oI the Agency, donors, or strategIc aIIIes. As the acute phase transItIons to
greater stabIIIty or recovery, SItreps may be requIred Iess IrequentIy.
E. Content
t Is emphasIzed that conIIdentIaI or sensItIve InIormatIon shouId be sent under separate
cover. The IoIIowIng Is a suggested outIIne.
* ntroductory nIormatIon
1. Country Program
2. SItrep Number
3. Dates Covered by Report (SItreps shouId normaIIy be Issued at reguIar IntervaIs)
4. Author
* HIghIIghts
* OvervIew
A. PoIItIcaI]SecurIty SItuatIon (when appIIcabIe)
DescrIbe changes In the poIItIco-mIIItary sItuatIon. EmphasIs shouId be on:
1. CeneraI anaIysIs or report oI changes In conIIIct and poIItIcaI sItuatIon natIonaIIy.
2. Changes whIch IndIcate or may IndIcate more vIoIence. DescrIbe vIoIent IncIdents at CRS,
dIstrIbutIon IocatIons, and IntervenIng poInts. Note sIgnIIIcant changes In troop
depIoyment and]or IactIon resources whIch may suggest Iuture vIoIent IncIdents at
those IocatIons. DescrIbe actIons beIng taken to reduce rIsks to staII and CRS assets.
3. Changes whIch aIIect or may aIIect peace. These IncIude meetIngs between IactIons,
peace taIks, coIIaboratIon, decreases In a partIcuIar group's abIIIty or wIII to IIght.
and]or NaturaI DIsaster SItuatIon (when appIIcabIe)
DescrIbe changes In the envIronment reIatIve to the dIsaster. EmphasIs shouId be on:
1. CeneraI anaIysIs on changes In drought]IIood]earthquake condItIons.
2. Changes whIch IndIcate or may IndIcate worsenIng oI condItIons or theIr eIIects.
3. Changes whIch IndIcate or may IndIcate Improvement In the condItIons or theIr eIIects.
8. AIIected PopuIatIons
ncIude InIormatIon on IocatIons and numbers oI aIIected popuIatIons, IncIudIng the
percentage change sInce the Iast sItrep. I possIbIe, IncIude popuIatIon percentages by
gender, age (chIId]aduIt]eIderIy), and IamIIy status (unaccompanIed]In IamIIIes).
n the text, descrIbe:
1. PopuIatIon movements sInce the Iast sItrep, where approprIate: who moved, Irom where
to where, In what numbers.
2. The aIIected popuIatIon's character: orIgIn, reIevant Ieatures (eg., ethnIcIty, reIIgIon,
skIIIs).
3. The aIIected popuIatIon's IIvIng condItIons: gIven by sectors II possIbIe (eg., 1. Iood
access]avaIIabIIIty: numbers moderateIy and severeIy maInourIshed, 2. heaIth: mortaIIty
IeveIs, IncIdence oI epIdemIc dIseases).
4. The prognosIs Ior theIr movement, II any Is IIkeIy.
Sources Ior quantItatIve InIormatIon II any shouId be IdentIIIed.
ndIcate whether CRS Is workIng wIth these popuIatIons and II so how many are beIng
reached. n the text, descrIbe condItIons whIch prevent IncIusIon oI others In the program.
ThIs shouId IncIude a summary oI IIeId trIps made to new popuIatIon IocatIons.
C. LocaI and nternatIonaI Partners
DescrIbe any sIgnIIIcant deveIopments In reIatIons wIth IocaI and InternatIonaI partners
and]or theIr abIIIty to carry out the program as joIntIy deveIoped. State whether partner
addItIons or deIetIons are beIng consIdered and why. DescrIbe potentIaI partners In terms oI
theIr reIevance to the emergency and theIr abIIIty to carry out coIIaboratIve programmIng.
AIso, descrIbe reIatIons wIth Church oIIIcIaIs, IncIudIng the VatIcan's representatIve and
head oI the 8Ishop's conIerence.
D. ProgrammIng
SummarIze programmIng deveIopments by sector (eg. Iood securIty, heaIth,
water]sanItatIon, peace buIIdIng) and theme (e.g., gender responsIveness, capacIty buIIdIng,
envIronmentaI soundness). ReIate the sectoraI actIvIty to the summary oI IIvIng condItIons
IIsted above. DeveIopments couId IncIude the compIetIon oI assessments,
ImpIementatIon]monItorIng vIsIts, and]or evaIuatIons conducted durIng the reportIng
perIod. SummarIze the concIusIons reached durIng these actIvItIes. DescrIbe probIems
encountered II any and actIons beIng taken to address them. These shouId IncIude resource
scarcIty IncIudIng pIanned appeaIs to donors II approprIate. OutIIne new programmIng
optIons.
ncIude InIormatIon II avaIIabIe on project status, wIth the name and number oI projects,
IeveIs oI IundIng, and tIme perIod. ThIs IIst can be carrIed over and updated between
reports.
E. LogIstIcs
ncIude InIormatIon on program actIvItIes by IocatIon and commodIty, wIth percentage
changes Irom the Iast sItrep. n the text, descrIbe probIems encountered or antIcIpated and
actIons beIng taken to address them.
F. CoordInatIon
1. SummarIze resuIts oI reguIar coordInatIon meetIngs.
2. LIst muItIIateraIs and]or NCOs enterIng or IeavIng the country, and gIve reasons Ior
IeavIng where appIIcabIe. DescrIbe sIgnIIIcant deveIopments by other agencIes whose
work mIght aIIect CRS programs and pIans Ior coordInatIng wIth them.
3. DescrIbe any changes In government poIIcy not IIsted above whIch mIght sIgnIIIcantIy
aIIect CRS programs.
4. DescrIbe and attach any press coverage whIch names CRS or Its staII members.
5. ncIude InIormatIon on the prIncIpaI IocaI actors wIth a reIatIonshIp to CRS: partners,
church oIIIcIaIs, etc.
C. CRS StaII
Note any changes In proIessIonaI staII sInce the Iast sItrep, IncIudIng reasons Ior departures
and pIanned responsIbIIItIes oI new arrIvaIs.
H. PubIIc nIormatIon
ncIude any InIormatIon and]or quotes that can be utIIIzed by the Web UnIt and
CommunIcatIons Ior pubIIc consumptIon.
K. Emergency Response Team OrganIzatIonaI
Chart
Program QuaIIty &
Support Department
DIrector
(HQ based)
PQSD
AdmInIstratIve
AssIstant
DrIver]
Messenger
AdmInIstratIve
AssIstant
MedIa
AdvIsor
Human
Resources
Emergency
AdvIsor
Deputy
Team
Leader
PubIIc
NutrItIon
TA
LogIstIcs
TA
AgrIcuIture
TA
SecurIty &
TeIecoms
TA
SheIter
TA
MQ In
EmergencIes
TA
HQ 8ased StaII
Sarajevo
8ased StaII
NaIrobI 8ased StaII
Emergency Response
Team
Team Leader
(NaIrobI based)
L. Emergency Response CheckIIst Ior
Managers
Country RepresentatIve (CR) and RegIonaI DIrector (RD) provIde earIy warnIng
InIormatIon to RegIonaI Teams]8aItImore and ERT]8aItImore and IncIude an
IndIcatIon oI the magnItude oI the emergency and potentIaI CRS response (see the
SItuatIon Report Iormat In Annex ])
RegIonaI Teams, as prIncIpaI HQ poInts oI contact Ior the IIeId, keep the EMT and ERT
appraIsed oI the sItuatIon
I evacuatIon Is a possIbIIIty, RegIonaI Teams are In dIrect contact wIth the EMT (see
the Emergency EvacuatIon CheckIIst In the CRS SecurIty and StaII SaIety CuIdeIInes)
CR and RD request start-up Iunds dIrectIy Irom EMT II requIred ImmedIateIy to Iaunch
a Iarge scaIe and]or hIgh proIIIe response.
Requests Ior prIvate undesIgnated Iunds based on a proposaI are sent to the ERT HQ
Ior revIew and recommendatIon (see the revIew process dIagram In FIgure 3.1)
The ERT]HQ caIIs an Emergency Response WorkIng Croup (ERWC) meetIng to provIde
an update to the sItuatIon and cIarIIy HQ roIes and responsIbIIItIes (see the ERWC
ProtocoI In SectIon 3.3)
Requests Ior ERT staII to traveI to the emergency are made dIrectIy to the ERT Team
Leader by the RD and CR. AvaIIabIIIty oI ERT staII to assIst wIth the emergency based
on the needs IdentIIIed by the CR and RD are determIned by the ERT Team Leader
AddItIonaI TDY staII needs are handIed by the RegIonaI Team and]or In coordInatIon
wIth other RDs to network on the avaIIabIIIty oI avaIIabIe TDY staII. The HR
Emergency RecruIter Is depIoyed II there Is a need Ior HQ IeveI HR partIcIpatIon
M. WebsItes Ior HumanItarIan ReIIeI News,
OrganIzatIons, Donors
Note: ThIs Is not an exhaustIve IIst.
A
ACTONAD www.actIonaId.org
ActIon AgaInst Hunger - UK www.aah-uk.org
ActIon AgaInst Hunger - USA www.aah-usa.org
ActIon Contre Ia FaIm (ACF) www.acI-Ir.org
ActIon by Churches Together (ACT) www.act-IntI.org
AdventIst DeveIopment and ReIIeI Agency (ADRA) www.adra.org
AIrIcare www.aIrIcare.org
AIertNet www.aIertnet.org]
ALNAP www.aInap.org]
AmerIcan FrIends ServIce CommIttee (AFSC) www.aIsc.org]
AmerIcan Red Cross (ANRC) www.crossnet.org
AmerIcan ReIugee CommIttee (ARC) www.archq.org
Amnesty nternatIonaI www.amnesty.org]
AsIa PacIIIc DIsaster Management Centre www.apdmc.com
AustraIIan CouncII Ior Overseas AId (ACFOA) www.acIoa.asn.au
8
8ureau oI PopuIatIon, ReIugees and MIgratIon
(U.S. Department oI State)
www.state.gov]www]gIobaI]prm]
C
CAFOD www.caIod.org.uk
CARE www.care.org
CarItas nternatIonaIIs www.carItas.net
CarItas AmbrosIana www.carItas.It
CarItas Cermany www.carItas-InternatIonaI.de
CarItas SwItzerIand www.carItas.ch
CathoIIc MedIcaI MIssIon 8oard (CMM8) www.cmmb.org
Centre Ior Research on the EpIdemIoIogy oI DIsasters www.cred.be
ConIIIct(CCPDC) www.ccpdc.org
ChIIdren's AId DIrect (CAD) www.cad.org.uk
ChrIstIan AId www.chrIstIan-aId.org
ChrIstIan ChIIdren's Fund www.chrIstIanchIIdrensIund.org
Church WorId ServIce www.ncccusa.org]CWS]emre]
CDSE: CooperatIon pour Ie DeveIoppement
et Ia SoIIdarIte www.cIdse.be]
CommunIty oI San EgIdIo www.santegIdIo.org]
Concern WorIdwIde www.concern.Ie
CooperazIone e SvIIuppo (CESV) www.cesvI.org
D
DanIsh ReIugee CouncII www.drc.dk
Derechos Human RIghts www.derechos.org
DIsasters Emergency CommIttee (DEC) www.candrIc.com]appeaI]
The DIsaster News Network www.dIsasternews.net
Doctors WIthout 8orders www.doctorswIthoutborders.org]
Doctors oI the WorId (DOW) www.doctorsoItheworId.org
E
European CommunIty HumanItarIan OIIIce (ECHO) www.europa.eu.Int]comm]echo]
en]Indexen.htmI
European CouncII on ReIugees and ExIIes (ECRE) www.ecre.org
European Network on ntegratIon oI ReIugees www.reIugeenet.org
European Roma RIghts Center (ERRC) www.errc.org]
European VoIcanoIogIcaI SocIety (S.V.E.) www.sveurop.org
F
FamIne EarIy WarnIng System-USAD www.Iews.net
Food and AgrIcuIture OrganIsatIon www.Iao.org
Food Ior the Hungry www.Ih.org
Food Ior Peace-USAD www.usaId.gov]humresponse]
IIp]
Forced MIgratIon Projects www.soros.org]mIgrate.htmI
Forum Europe (HumanItarIan AIIaIrs RevIew) www.humanItarIan-revIew.org
C
CTZ: Cerman TechnIcaI CooperatIon www.gtz.de
CIobaI DP Project www.Idpproject.org
COAL www.goaI.Ie
Croupe d'Urgence et DeveIoppement www.urd.org
H
HeIpAge nternatIonaI(HA) www.oneworId.org]heIpage
Human RIghts Watch www.hrw.org

nterActIon www.InteractIon.org
nternatIonaI CommIttee oI the Red Cross (CRC) www.Icrc.org
nternatIonaI CouncII oI VoIuntary AgencIes (CVA) www.Icva.ch
nternatIonaI FederatIon oI Red Cross and Red
Crescent SocIetIes (FRC) www.IIrc.org
nternatIonaI nstItute oI HumanItarIan Law (HL) www.IIhI.org
nternatIonaI MedIcaI Corps (MC) www.Imc-Ia.com
nternatIonaI Orthodox ChrIstIan CharItIes www.Iocc.org
nternatIonaI Peace 8ureau (P8) www.Ipb.org
nternatIonaI Rescue CommIttee www.Intrescom.org]Index.htmI
sIamIc AIrIcan ReIIeI Agency, USA (ARA-USA) www.Iara-usa.org
sIamIc ReIIeI (R) www.IsIamIc-reIIeI.org.uk
]
]esuIt ReIugee ServIces www.jws.org
K
L
Lutheran WorId FederatIon (LWF) www.IutheranworId.org
Lutheran WorId ReIIeI (LWR) www.Iwr.org]
M
MEDAR www.medaIr.org
MedecIns du Monde - nternatIonaI www.muItImanIa.com]
medecInsdumonde]InternatIonaI
MedecIns Sans FrontIeres www.msI.org]
MedIcaI Emergency ReIIeI nternatIonaI (MERLN) www.merIIn.org.uk
MennonIte CentraI CommIttee (MCC) www.mcc.org
Mercy Corps nternatIonaI www.mercycorps.org
Mercy AIrIIIt (Mercy AIr) www.mercyaIrIIIt.org
Mercy nternatIonaI-U.S.A., nc. www.mercyusa.org
MInes AdvIsory Croup (MAC) www.oneworId.org]mag]
N
NorwegIan Church AId (NCA) www.nca.no
NorwegIan PeopIe's AId www.npaId.no
NorwegIan ReIugee CouncII www.nrc.no
O
OIIIce oI ForeIgn DIsaster AssIstance (OFDA) www.usaId.gov]humresponse]
oIda
OIIIce oI the CoordInatIon oI HumanItarIan
AIIaIrs (UNOCHA) http:]]reIIeIweb.Int]ocha
OIIIce oI TransItIon nItIatIves (OT) www.usaId.gov]humresponse]
otI
OneWorId OnIIne www.oneworId.org
OxIam www.oxIam.org
P
PharmacIens Sans FrontIeres nternatIonaI www.psI-pharm.org
PhysIcIans Ior Human RIghts www.phrusa.org
Q
R
Rdda 8arnen www.rb.se
RedR (U.K.) www.redr.org
ReIugees nternatIonaI www.reIIntI.org
ReIIeI nternatIonaI (R) www.rI.org
Rotary nternatIonaI www.rotary.org
ReIIeI Web www.reIIeIweb.Int]w]rwb.nsI
S
The SaIvatIon Army www.saIvatIonarmy.org
Save the ChIIdren Fund www.savethechIIdren.org.uk
Save the ChIIdren U.S. www.savethechIIdren.org
T
TearIund www.tearIund.org
U
UNHCR www.unhcr.ch
UNCEF www.unIceI.org
US Agency Ior nternatIonaI DeveIopment www.usaId.gov
The U.S. CommIttee Ior ReIugees (USCR) www.reIugees.org
V
VoIuntary OrganIsatIons In CooperatIon
In EmergencIes (VOCE) www.oneworId.org.voIce
W
WorId 8ank www.worIdbank.org
WorId Concern www.worIdconcern.org
WorId CouncII oI Churches (WCC) www.wcc-coe.org
WorId Food Programme www.wIp.org
WorId HeaIth OrganIsatIon www.who.Int]home-page
WorId VIsIon www.worIdvIsIon.org
CIossary
AccountabIIIty: The responsIbIIIty to demonstrate to stakehoIders, Ioremost oI whom are
dIsaster-aIIected peopIe, that humanItarIan assIstance compIIes wIth agreed standards.
(Sphere Handbook)
Anthropometry: The study oI human body measurement.
CapacIty buIIdIng: Any InterventIon desIgned eIther to reInIorce or create strengths upon
whIch communItIes can draw to oIIset dIsaster-reIated vuInerabIIIty (Lautze, Hammond,
CopIng wIth CrIsIs, CopIng wIth AId, December 1996).
CompIementary Food RatIon: provIdes one or two Iood commodItIes to compIement
exIstIng Ioods avaIIabIe and accessIbIe to the aIIected popuIatIon (Sphere Handbook).
CompIex Emergency: nternaI poIItIcaI crIses and]or armed conIIIct, compIIcated by an array
oI poIItIcaI, socIaI and economIc Iactors. (Source: UnIted NatIons CET ContIngency PIannIng
TraInIng, Oct. 1996).
ContIngency PIannIng: A Iorward pIannIng process In a state oI uncertaInty In whIch
scenarIos and objectIves are agreed, managerIaI and technIcaI actIons deIIned, and potentIaI
response systems put In pIace to prevent or Improve response to an emergency.
CopIng Strategy]MechanIsm: VarIous actIvItIes that IndIvIduaIs, househoIds and
communItIes deveIop to overcome poverty, adversIty and crIsIs. CopIng strategIes vary by
regIon, communIty, socIaI cIass, ethnIc group, gender, and accordIng to the nature and
duratIon oI the rIsk or emergency occurrIng at the tIme. Patterns oI copIng behavIor as weII
as househoId assets utIIIzed to cope wIth a crIsIs wIII depend on who-women or men-
make the decIsIons (MaxweII, S. and Frankenberger, T., HousehoId Food SecurIty: Concepts,
ndIcators, Measurements. A TechnIcaI RevIew; UNCEF, FAD, USA, 1995)
DIsaster: SItuatIon or event, whIch overwheIms IocaI capacIty, necessItatIng a request to
natIonaI or InternatIonaI IeveI Ior externaI assIstance (deIInItIon consIdered In EM-DAT); An
unIoreseen and oIten sudden event that causes great damage, destructIon and human
suIIerIng. Though oIten caused by nature, dIsasters can have human orIgIns. Wars and cIvII
dIsturbances that destroy homeIands and dIspIace peopIe are IncIuded among the causes oI
dIsasters. Other causes can be: buIIdIng coIIapse, bIIzzard, drought, epIdemIc, earthquake,
expIosIon, IIre, IIood, hazardous materIaI or transportatIon IncIdent (such as a chemIcaI
spIII), hurrIcane, nucIear IncIdent, tornado, or voIcano (DIsaster ReIIeI).
DIsaster-AIIected PeopIe]PopuIatIon: AII peopIe whose IIIe or heaIth are threatened by
dIsaster, whether dIspIaced or In theIr home area. (Sphere Handbook)
Drought: PerIod oI deIIcIency oI moIsture In the soII such that there Is Inadequate water
requIred Ior pIants, anImaIs and human beIngs.
EarIy WarnIng: A process oI InIormatIon gatherIng and poIIcy anaIysIs to aIIow the
predIctIon oI deveIopIng crIses and actIon eIther to prevent them or contaIn theIr eIIects.
The key eIements oI earIy warnIng are coIIectIon oI InIormatIon, anaIysIs oI that InIormatIon,
dIssemInatIon oI IIndIngs and actIon.
Earthquake: Sudden break wIthIn the upper Iayers oI the earth, sometImes breakIng the
surIace, resuItIng In the vIbratIon oI the ground, whIch where strong enough wIII cause the
coIIapse oI buIIdIngs and destructIon oI IIIe and property.
Emergency: An emergency Is an extraordInary sItuatIon, present or ImmInent, In whIch there
are serIous and ImmedIate threats to human IIIe, dIgnIty and IIveIIhoods.
Emergency Preparedness: Emergency preparedness actIvItIes aIm to protect IIves and
property Irom an ImmedIate threat, to promote rapId reactIon In the ImmedIate aItermath oI
a dIsaster, and to structure the response to both the emergency and Ionger-term recovery
operatIons.
FIood: SIgnIIIcant rIse oI water IeveI In a stream, Iake, reservoIr or coastaI regIon.
Food SecurIty: USAD deIInes Iood securIty as, "When aII peopIe at aII tImes have bot
physIcaI and economIc access to suIIIcIent Iood to meet theIr dIetary needs Ior a productIve
and heaIthy IIIe." The three pIIIars oI thIs Iood securIty modeI are access, avaIIabIIIty and
utIIIzatIon.
CeneraI Food DIstrIbutIon: a dIstrIbutIon program that provIdes a compIete basket oI Iood
commodItIes In quantItIes suIIIcIent to meet requIrements. (The Sphere Handbook).
Human RIghts Law: the body oI customary InternatIonaI Iaw, human rIghts Instruments and
natIonaI Iaw that recognIzes and protects human rIghts. ReIugee Iaw and human rIghts Iaw
compIement each other. (ProtectIng ReIugees: A FIeId CuIde Ior NCOs, UnIted NatIons
PubIIcatIons, Ceneva, May 1999)
HumanItarIan Actor: An organIzatIon that supports the provIsIon oI humanItarIan
assIstance. (Sphere Handbook)
HumanItarIan AssIstance: The provIsIon oI basIc requIrements whIch meet peopIe's needs
Ior adequate water, sanItatIon, nutrItIon, Iood, sheIter and heaIth care. (Sphere Handbook)
HurrIcane: Large-scaIe cIosed cIrcuIatIon system In the atmosphere above the western
AtIantIc wIth Iow barometrIc pressure and strong wInds that rotate cIockwIse In the southern
hemIsphere and counter-cIockwIse In the northern hemIsphere. MaxImum wInd speed oI 64
knots or more [See cycIone Ior the ndIan Ocean and South PacIIIc and eastern PacIIIc and
typhoon Ior the western PacIIIc]. (In EM-DAT, hurrIcane Is a dIsaster subset oI
dIsaster type wInd storm ).
nternaIIy DIspIaced Person: persons or groups oI persons who have been Iorced or obIIged
to IIee or to Ieave theIr homes or pIaces oI habItuaI resIdence, In partIcuIar as a resuIt oI or
In order to avoId the eIIects oI armed conIIIct, sItuatIons oI generaIIzed vIoIence, vIoIatIons
oI human rIghts or naturaI or human-made dIsasters, and who have not crossed an
InternatIonaIIy recognIzed State border. (Cohen, Roberta and FrancIs Deng. Masses In
FIIght: The CIobaI CrIsIs oI nternaI DIspIacement, 8rookIngs nstItutIon Press, WashIngton,
D.C., 1998)
nternatIonaI HumanItarIan Law (or the Iaw oI armed conIIIct): the body oI Iaw, reguIatIons
and prIncIpIes that governs sItuatIons oI InternatIonaI or non-InternatIonaI armed conIIIct.
The core Instruments oI InternatIonaI humanItarIan Iaw are the Iour Ceneva ConventIons oI
12 August 1949 and theIr two AddItIonaI ProtocoIs oI 8 ]une 1977. VIrtuaIIy every State Is a
party to the Ceneva ConventIons oI 1949. (ProtectIng ReIugees: A FIeId CuIde Ior NCOs,
UnIted NatIons PubIIcatIons, Ceneva, May 1999)
LIveIIhood: Means oI support or subsIstence; adequate stocks and IIows oI Iood and cash to
meet basIc needs. LIveIIhood strategy reIers to the manner In whIch a househoId aIIocates
Its members' Iabor tIme In the pursuIt oI varIous means oI earnIng to meet basIc needs.
(Food SecurIty, Poverty and Women: Lessons Irom RuraI AsIa, FAD, Rome, 1997)
MItIgatIon: actIvItIes that Iocus on mInImIzIng the Impact oI a dIsaster or, In the case oI
sIow-onset dIsasters, preventIng uItImate catastrophe through actIvItIes whIch decrease
peopIes' vuInerabIIItIes.
NaturaI DIsaster: emergencIes generated by phenomena such as earthquakes, typhoons,
voIcanIc eruptIons, and drought.
Needs Assessment: a muItI-stage process oI understandIng the ImmedIate needs oI a
popuIatIon to prevent Ioss oI IIIe, stop deterIoratIon oI and restore househoId Iood and
IIveIIhood securIty status IoIIowIng a dIsaster.
Non-reIouIement: a core prIncIpIe oI reIugee Iaw that prohIbIts States Irom returnIng
reIugees In any manner whatsoever to countrIes or terrItorIes In whIch theIr IIves or Ireedom
may be threatened. The prIncIpIe oI non-reIouIement Is a part oI customary InternatIonaI
Iaw and Is thereIore bIndIng on aII States, whether or not they are partIes to the 1951
ConventIon. (ProtectIng ReIugees: A FIeId CuIde Ior NCOs, UnIted NatIons PubIIcatIons,
Ceneva, May 1999)
ReIugee: a reIugee Is someone who Is outsIde hIs]her country oI orIgIn; has a weII-Iounded
Iear oI persecutIon because oI hIs]her race, reIIgIon, natIonaIIty, membershIp In a partIcuIar
socIaI group, or poIItIcaI opInIon; and Is unabIe or unwIIIIng ot avaII hIm]herseII oI the
protectIon oI that country, or to return there, Ior Iear oI persecutIon. (ProtectIng ReIugees: A
FIeId CuIde Ior NCOs, UnIted NatIons PubIIcatIons, Ceneva, May 1999)
ReIugee Law: the body oI customary InternatIonaI Iaw and varIous InternatIonaI, regIonaI
and natIonaI Instruments that estabIIsh standards Ior reIugee protectIon. The cornerstone
oI reIugee Iaw Is the 1951 ConventIon reIatIng to the Status oI ReIugees. (ProtectIng
ReIugees: A FIeId CuIde Ior NCOs, UnIted NatIons PubIIcatIons, Ceneva, May 1999)
SuppIementary FeedIng Program (SFP): a IeedIng program that provIdes 1) a quaIIty or
energy suppIement In addItIon to the normaI ratIon whIch Is dIstrIbuted to aII members oI
IdentIIIed vuInerabIe groups to reduce rIsk (8Ianket SFP: preventatIve), or 2) provIdes energy
or quaIIty suppIement and basIc heaIth screenIng to those that are aIready moderateIy
maInourIshed to prevent them Irom becomIng severeIy maInourIshed and Improve theIr
nutrItIonaI status (Targeted SuppIementary FeedIng: curatIve). (NutrItIon CuIdeIInes,
MedecIns sans IrontIeres, ParIs, 1995).
TherapeutIc FeedIng Program (TFP): a program that provIdes a careIuIIy baIanced and
IntensIveIy managed dIetary regIme wIth IntensIve medIcaI attentIon, to rehabIIItate the
severeIy maInourIshed (curatIve) and reduce excess mortaIIty. (NutrItIon CuIdeIInes,
MedecIns sans IrontIeres, ParIs, 1995).
Transparency: openness and accessIbIIIty oI humanItarIan agencIes, theIr systems and
InIormatIon. (The Sphere Handbook).
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