Evaluating the International Humanitarian System: Rationale, Process and Management of the Joint Evaluation of the International Response to the Rwanda Genocide

The Rwanda evaluation has been termed a landmark in evaluation, not only because of its quality and the insights it has produced. It was also an unprecedented international collaboration to learn the lessons from the immense tragedy that was the genocide in Rwanda and its aftermath. This paper reports on the rationale, process and management of the joint evaluation of the international response to the Great Lakes crisis of 1994–5.     

The role of research institutions in seed-related disaster relief: Seeds of Hope experiences in Rwanda

The article describes the efforts of a coalition of agricultural research centres, Seeds of Hope (SOH) in the rebuilding, of Rwanda, after the genocide and war of 1994. Research involvement in emergency relief and rehabilitation was unusual at the time and SOH had to forge its unique complementary role. Focusing on crop and variety development and conservation it: provided technical advice to relief agencies on seed procurement; used its baseline ken to assess the effects of war on seed diversity and seed security; made preparations to restore specific germplasm (which, fortunately, proved unnecessary) and spent substantial effort on rebuilding human resource capacity in research as well as basic scientific facilities. The involvement of SOH highlighted the critical, yet very different, roles for research during emergency versus rehabilitation periods and demonstrated the cost effectiveness of building in a diagnostic component--before massive seed or germplasm distributions are programmed.     

Humanitarian action and military intervention: temptations and possibilities

Although the war in Liberia in July 2003 claimed hundreds of lives, the international community was reluctant to intervene. In this article, the author debates the question: does international military intervention equal protection of populations? The role of humanitarian organisations in military intervention is considered. Aid organisations cannot call for deployment of a protection force without renouncing their autonomy or appealing to references outside their own practices. Such organisations provide victims with vital assistance and contribute to ensuring that their fate becomes a stake in political debate by exposing the violence that engulfs them, without substituting their own voices for those of the victims. The political content of humanitarian action is also outlined and military intervention in the context of genocide is discussed. The author concludes that the latter is one of the rare situations in which humanitarian actors can consider calling for an armed intervention without renouncing their own logic.     

Dead letter or living document? Ten years of the Code of Conduct for disaster relief

This paper examines the present value of the Code of Conduct for the International Red Cross and Red Crescent Movement and Non-Governmental Organizations (NGOs) in Disaster Relief, in view of discussions on neutrality and the Western bias of the humanitarian aid system, and assesses how it can retain its relevance in future. The Code of Conduct was launched just after the Rwanda genocide of April 1994. A decade later, the crises in Afghanistan and Iraq have sparked renewed interest in humanitarian principles and in whether the code can serve as an instrument to define humanitarianism and guide humanitarian decision-making and coordination. More than 300 organisations have now subscribed to it. This paper is based on the findings of a survey of code signatories and the outcomes of a conference on the value and future of the code, held in The Hague, Netherlands, in September 2004 to mark its tenth anniversary.     

An examination of community flood warning systems: Are we providing the right assistance?

The technology transfer of flood warning systems offers a large potential for reducing human losses and property damage in flood-prone regions; much of the technology and methodology is readily transferable from developed countries and “appropriate” for developing countries. This paper examines some community folk warning systems in the United States that could be incorporated into a rational strategy for technology transfer. It discusses why official organized systems should not be relied on completely and how participation in and transfer of highly cost-effective and reliable community warning systems by development assistance agencies could greatly benefit the people as well as the governments of developing countries.     

地震预警系统应用的社会影响调查与分析

地震预警系统建设是降低地震灾害的一个重要途径,可以有效地减少人员伤亡和财产损失,但地震预警系统目前还处于发展阶段,应用中存在一定风险。设计了若干个关于地震预警系统应用的社会调查问卷,以通过调查结果定性地评估地震预警系统产生的社会影响,统计公众对预警系统的认识和需求,分析预警信息发布对公众的影响和公众对地震漏报、误报等风险的接受程度,以及地震预警系统相关的法律问题。调查结果显示,我国公众对地震预警系统的期望程度及有效性评价均很高,但也存在着一些问题,如对地震预警相关知识了解较少,对紧急事件应变能力较差,对预警盲区和漏报等风险接受程度较低等。最后,结合国外地震预警系统的研究成果和应用现状,提出了相关建议及应对措施,希望能对我国预警系统的建设提供参考作用。     

An Account of Co-ordination Mechanisms for Humanitarian Assistance During the International Response to the 1994 Crisis in Rwanda

This paper examines the co-ordination strategies developed to respond to the Great Lakes crisis following the events of April 1994. It analyses the different functions and mechanisms which sought to achieve a co-ordinated response – ranging from facilitation at one extreme to management and direction at the other. The different regimes developed to facilitate co-ordination within Rwanda and neighbouring countries, focusing on both inter-agency and inter-country co-ordination issues, are then analysed. Finally, the paper highlights the absence of mechanisms to achieve coherence between the humanitarian, political and security domains. It concludes that effective co-ordination is critical not only to achieve programme efficiency, but to ensure that the appropriate instruments and strategies to respond to complex political emergencies are in place. It proposes a radical re-shaping of international humanitarian, political and security institutions, particularly the United Nations, to improve the effectiveness of humanitarian and political responses to crises such as that in the Great Lakes.     

Working with states to build competence in disaster response

This paper examines the relationship between national disaster response authorities and the international humanitarian community through case studies in three countries where it is generally agreed that good working relations exist. It seeks to understand the common phenomena which led to those good relations. The paper takes as its premise that the international humanitarian aid community, bruised by its experience in non-functioning and predatory states, has developed an unhelpful aversion to cooperation with, and working through, local government. It posits that in a future with climate change, disasters will be more frequent and this requires a necessary shift, on the part of international agencies and local government from seeing disaster response as exceptional and interventionist to viewing it as a standard part of sovereign duty and normalcy. The study highlights a number of common features across the three case studies which shed light on why disaster response has been transformed in the study countries.     

In Defence of Humanitarianism

The humanitarian crisis which followed in the wake of the genocidal regime in Rwanda in 1994 generated massive media attention and an unprecedented outpouring of international public and private assistance. In late 1997, the Rwanda refugee population in Zaire was subjected to a disaster of similarly epic proportions as a result of military action. Yet this crisis went relatively under-reported and failed to attract substantial aid funds, particularly from official donors. This paper seeks to document and account for the demise of the humanitarian imperative. It confronts a number of the criticisms of humanitarian action, concluding that, rather than being flawed, traditional humanitarian values remain valid and should be defended wherever there are situations of conflict.     

Resilience in the context of tsunami early warning systems and community disaster preparedness in the Indian Ocean Region

This paper discusses insights from post-tsunami early warning system (EWS) development in Thailand, Sri Lanka and Indonesia by analysing selected elements of resilience, based on the Coastal Community Resilience (CCR) framework, and by distinguishing between the cognitive, normative and procedural dimensions of EWSs. The findings indicate that (1) recent calls to develop participatory and people-centred EWSs as promoted by the Hyogo Framework for Action 2005—2015 have not been sufficiently translated into action in the implementation of national policies and strategies for early warning; (2) policy and guidance places significantly more emphasis on the procedural compared to the normative and cognitive dimensions of EWSs; (3) practitioners engaged in early warning and disaster risk reduction operate in contexts shaped by multiple stakeholder agendas and face considerable challenges in negotiating diverse needs and priorities; and (4) few platforms currently exist that enable stakeholders to coordinate and reconcile agendas, negotiate joint targets, share knowledge and critically reflect on lessons learnt, and to improve the integration of early warning with other priorities such as livelihoods improvement, natural resource management and community development.     

Cracking the humanitarian logistic coordination challenge: lessons from the urban search and rescue community

The challenges of achieving successful inter‐agency logistic coordination in preparing for and responding to natural disasters and complex emergencies are both well understood and well documented. However, although many of these challenges remain unresolved, the literature reveals that the organisations that form the urban search and rescue (USAR) community have attained a high level of coherence and interoperability that results in a highly efficient and effective response. Therefore, this paper uses the idea of ‘borrowing’ from other fields as it explores how the processes and procedures used by the USAR community might be applied to improve humanitarian logistic operations. The paper analyses the USAR model and explores how the resultant challenges might be addressed in a humanitarian logistic context. The paper recommends that further research be undertaken in order to develop a modified USAR model that could be operationalised by the international community of humanitarian logisticians.     

Normalising the Crisis in Africa

Developmental relief has become the central doctrine of 'good practice' in humanitarian responses to complex political emergencies. This is despite the fact that a proliferation of such emergencies reflects a failure of development for people in those countries in crisis. Drawing on case study material from Sudan, Somalia, Rwanda and Uganda, this paper challenges assumptions made about the efficacy of developmental relief models in complex emergencies. The trend towards developmental relief practices coincides with an increasing acceptance of higher levels of humanitarian distress in Africa. Myths of aid dependency and the pursuit of sustainable programming in the midst of war are linked to a global reduction in aid. The mantra of 'local solutions to local problems' locates the causes of crises firmly within those societies in crisis. It provides a premise for international disengagement, and the denial of international responsibility for the genesis and prolongation of humanitarian crises in Africa. Assigning solutions to the poor, the marginalised and victimised through enhanced 'participation' and local financing of services sustains a myth that development is occurring, when in fact levels of distress are rising.     

New insights into the benefits of flood warnings: Results from a household survey in England and Wales

The flood defence agency in England and Wales has been pursuing a programme of flood warning system enhancement, engaging householders at risk in improving their warning responses. The immediate aim of this paper is to test and revise a model of economic benefits of warnings, but the survey data also generate insights into the constraints acting upon flood warning responses. Damage saving is less than previously anticipated: warning reliability and householder availability problems limit savings. Warnings are less likely to be received by those in lower social grades, and flood warning lead time is a factor in avoiding damage. The survey data indicate the complexities involved in improving flood warning response, and provide policy pointers.     

New insights into the benefits of flood warnings: Results from a household survey in England and Wales

The flood defence agency in England and Wales has been pursuing a programme of flood warning system enhancement, engaging householders at risk in improving their warning responses. The immediate aim of this paper is to test and revise a model of economic benefits of warnings, but the survey data also generate insights into the constraints acting upon flood warning responses. Damage saving is less than previously anticipated: warning reliability and householder availability problems limit savings. Warnings are less likely to be received by those in lower social grades, and flood warning lead time is a factor in avoiding damage. The survey data indicate the complexities involved in improving flood warning response, and provide policy pointers.     

Agriculture and food security in ethiopia

Food security in Ethiopia is discussed in the context of the repeated famines and the international responses both to them and to the socialist agricultural policies being pursued by Ethiopia. Increasing concern has been expressed by the international donor community regarding the ability of Ethiopia to absorb development funds without a major shift in emphasis in agricultural policy-making. The background to Ethiopia's present vulnerability is shown both in terms of the size of the vulnerable population and in terms of the poor performance of the agricultural sector in the last decade. The author looks at the present agricultural and marketing policy reforms and questions whether they are sufficient to generate the sort of international response needed to create the level of food security that would be required to avert future famines.     

台风等重大灾害性事件的风险认知及预警机制

通过调查受灾民众及未受灾民众对台风等重大灾害性事件的风险认知及预警情况,比较两者的差异,为政府对重大灾害性事件建立预警管理模式提供依据。研究结果表明:①受灾民众和未受灾民众对重大灾害性事件的风险认知水平低,受灾民众对台风的风险认知明显高于未受灾民众(P<0.01);②两者对提升防灾意识的意愿强烈但对防灾资讯关心程度不够,且受灾民众明显更关心防灾资讯(P<0.01);③两者在通过某项预防措施可以避免灾害所造成的损失和撤离危险地区的问题上意见基本一致,但未受灾民众对政府辅助撤离更具有依赖性(P<0.01,P<0.05);④受灾民众比未受灾民众更相信科学家对灾害的预警能力(P<0.01),但均对目前的灾害预警系统满意度一般。     

Assessing the cost‐effectiveness of interventions within a humanitarian organisation

Cost‐effectiveness analysis is increasingly relevant in humanitarian action. The cost of response has increased exponentially in the past decade, alongside concurrent donor budget restrictions. However, there remains limited comprehension and application of these methods in this field. This paper documents methods developed for use within Action Against Hunger, an international humanitarian organisation, in response to a lack of understanding of this topic within the humanitarian community and limited evidence of the cost‐effectiveness of humanitarian action. These methods encompass costs to both implementing institutions and participating communities. Activity‐based cost analyses are conducted to assess resources per programme activity. Cost‐effectiveness is evaluated using successful programme outcomes, and uncertainty is appraised via sensitivity analysis. This paper aims to advance knowledge, stimulate discussion, and promote the adoption of cost‐effectiveness methods for building the evidence base for humanitarian action, including consideration of community costs, to enable analytical outputs that are useful for managers and policymakers alike.     

Interviews with Key Informants and Household Surveys: Central Ethiopia

Nutrition surveillance as part of, or complement to, the famine early warning system in Ethiopia has been used to collect reports on local food security from community leaders using structured interviews. As this information is crucial in the interpretation of other quantitative data, it is important to assess the extent to which leaders' information reflects the food related behaviour of the community. Information on various socio-economic variables related to nutrition were collected at the household level and at the community level through structured interviews with householders and community leaders. The information given by householders and by community leaders was compared. In general the correspondence between the two was good and the continued collection of local information from local leaders justified. There were a few topics on which information might be missed using only the local leader and ways to improve collecting this information are discussed.     

Food Aid and Nutritional Programmes During the Rwandan Emergency

In contrast to several other recent emergencies¹, the response of the international relief community to the Rwandan emergency appears largely to have prevented widespread malnutrition and related mortality. While it is true that aspects of the response in the food and nutrition sector were in various ways open to criticism and may have contributed to unnecessarily high levels of wasting in some camps at various points in time, the appalling excesses of famine witnessed in other recent African crises was not revisited during this emergency. Indeed, the main factors contributing to mortality and morbidity during the Rwandan emergency were violence and epidemics rather than lack of food and nutritional support.