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Number 29 March 2005 Humanitarian Practice Network HPNManaged by Humanitarian Humanitarian Policy Group Exchange In this issue Good Humanitarian Donorship Commissioned and published by the Humanitarian Practice Network at ODI 2 Welcome to the club 4 Good Donorship: how serious are Donors and agencies alike have the donors? long sought means of improving Herman, courtesy www.alertnet.org ©Reuters/Yves 8 Too good to be true? US engagement in the GHD initiative the performance, accountability 10 The EU: Good Humanitarian Donorship and transparency of humanitarian and the world’s biggest humanitarian action. Whilst a proliferation of NGO donor and agency initiatives followed the 13 Promoting Good Humanitarian Donorship: a task for the OECD-DAC? Rwanda genocide of 1994, it was 16 Good Humanitarian Donorship and the not until 2003 that donor govern- CAP ments took the important step of 18 Good Humanitarian Donorship and agreeing a foundation for improved funding according to need performance in their own humani- 21 Good donorship in practice: the case of Burundi tarian policy and practice. 24 No magic answers: Good Humanitarian Donorship in the Democratic Republic At an international meeting in Stockholm Given the importance of good donorship of Congo Practice and policy notes in 2003, donors committed to a set of and the potential of GHD to address many 28 Civilian deaths: a murky issue in the war principles and good practice designed to of the challenges that confront the humani- in Iraq make responses to humanitarian crises tarian system, why has more not been said 30 The Darfur crisis: simple needs, complex more effective, equitable and principled. about the initiative by those involved in response In October 2004, a second international humanitarian action? Could NGOs and 33 Predatory governance in the DRC: civilian impact and humanitarian response meeting was held in Ottawa to reaffirm agencies use GHD more effectively as a 36 A crisis turning inwards: refugee and IDP and review progress on these commit- platform for their advocacy towards militarisation in Uganda ments. donors? What is the scope and potential of 39 Schooling in refugee camps this agenda to improve the humanitarian 41 Saudi Arabia’s humanitarian aid: a political The ‘Good Humanitarian Donorship’ response in countries like the DRC and takeover? 43 Is cultural proximity the answer to gaining (GHD) initiative, as it has become Burundi, where the principles and practices access in Muslim contexts? known, seeks to address many of are being piloted? And what level of 46 Dead or alive? Ten years of the Code of the weaknesses in the humanitarian commitment have GHD donors demon- Conduct for Disaster Relief system, including the need for strated, individually, within the European 48 The Kobe conference: a review better coordination, investment in Union or other fora, such as the OECD Endpiece prevention and preparedness and Development Assistance Committee? 49 Tsunamis, accountability and the humanitarian circus flexible, timely and predictable About HPN funding. This is an important The articles in the special feature of this The Humanitarian Practice Network at the Overseas agenda. It is also a challenging issue of Humanitarian Exchange consider Development Institute is an independent forum one. In the context of significant these and other dilemmas at the opera- where field workers, managers and policymakers in the humanitarian sector share information, unmet humanitarian needs in tional and policy level, from experiences of analysis and experience. The views and opinions ongoing crises in countries such the GHD pilots in Burundi and the DRC, to expressed in HPN’s publications do not necessarily state or reflect those of the Humanitarian Policy as Chad, the Democratic Republic efforts to improve needs assessments and Group or the Overseas Development Institute. of Congo and Somalia, the strengthen the UN Consolidated Appeals massive donor response to Process, to donor policy in the EU and the Britain’s leading independent the Indian Ocean tsunami in US and efforts within fora such as the think-tank on international development and humanitarian issues December 2004 is a stark re- OECD-DAC to take the initiative forward. minder of the distance GHD still Overseas Development Institute has to travel before its commit- This issue also includes articles on a 111 Westminster Bridge Road London SE1 7JD ments to impartial and equi- range of other subjects of concern to United Kingdom table funding, according to policy-makers and practitioners in the Tel. +44 (0) 20 7922 0300 Fax. +44 (0) 20 7922 0399 need and on the basis of humanitarian sector. We hope you find it needs assessments, are interesting and, as always, we welcome HPN e-mail: [email protected] HPN website: www.odihpn.org translated into practice. your feedback. GOOD HUMANITARIAN DONORSHIP Welcome to the club Ian Smillie and Larry Minear, Humanitarianism and War Project, Tufts University The Good Humanitarian Donor Initiative is extremely policy-makers and practitioners, vividly illustrates the important – perhaps one of the most important weaknesses – and the strengths – of the existing humani- initiatives in humanitarian action in a decade. And it tarian apparatus.3 is important, not least, because it came from the donors themselves. It answers the criticisms of The weaknesses we identify are addressed by a number of twenty years in five pages of resolutions, and it is a the essential principles and good practices of humanitarian credit to all of the donors involved, but especially the donorship. The GHD platform framed at Stockholm, and Netherlands, Sweden and Canada which have had reaffirmed at Ottawa, stipulated that humanitarian action the stamina and the courage to push the initiative should be guided by the central principles of humanity, forward and to give it life. It has the potential to impartiality, neutrality and independence. Funding should make major differences in your ability to reach more be allocated ‘in proportion to needs and on the basis of people in need, more quickly, more effectively, and needs assessments’, within a context of respect for and more equitably. promotion of international law. Funds should be less condi- tional and more predictable. At a more programmatic level, These were our observations in a statement to the final good practice included improved reporting and a prefer- session of the Ottawa meeting on 22 October 2004. There ence for implementation by civilian over military institu- had been a discernible loss of momentum between the tions. The GHD platform endorsed ‘the central and unique launch of the GHD initiative in June 2003 and the review of role of the United Nations in providing leadership and co- progress at the Ottawa session 15 months later. We felt it ordination of international humanitarian action’. The fact necessary to bring the discussion back to first principles that donors themselves were taking action to redress their and inject some urgency and enthusiasm into the own behaviour seemed to constitute a compelling claim for languishing process. This article restates the importance support. The thrust of their commitments squared with our of the GHD initiative, examines how the Asian tsunami sense of what is needed. has confirmed the urgent need for it and suggests some issues for the future. the humanitarian endeavour is The relevance of GHD As independent analysts, we have had reservations about less than the sum of its multiple becoming GHD advocates. Yet that is precisely where the moving parts conclusions of our research on the current state of the humanitarian enterprise lead us.1 Our initial report, prepared for the Stockholm meeting, was entitled The Quality of Money: Donor Behavior in Humanitarian The tsunami experience Financing.2 It identified structural weaknesses in the Set against the backdrop of donor government commit- existing humanitarian system, concluding that ‘humani- ments to address the evident weaknesses in the global tarianism is not the main driver of donor behavior in humanitarian apparatus, the 26 December tsunami lent financing humanitarian work’, and that the whole of the its weighty imprimatur to GHD. In the aftermath of the humanitarian endeavour is less than the sum of its disaster, the weaknesses in humanitarian action flagged multiple moving parts. Our subsequent book, The Charity up in Stockholm and Ottawa were on vivid display. Nor of Nations, geared more to the general public than to were they beyond the scope of what donors envisioned: the opening affirmation of GHD principles embraces not only man-made crises but also natural disasters. 1 Our research on the political economy of humanitarian action, which Moreover, the GHD framework encompasses not only life- preceded the GHD initiative, was supported by the governments of saving interventions, but also strengthened prevention Australia, Canada, Sweden and Switzerland; the UN Office for the Coordination of Humanitarian Affairs; NGOs CARE Canada, Oxfam and preparedness strategies. Without doubt, the interna- America, Trocaire and World Vision Canada; and the Aga Khan tional response to the tsunami has provided dramatic Foundation Canada. confirmation of the costs associated with the failure in 2 The report, along with two others on related topics, is available at earlier years to implement ‘GHD-esque’ reforms. www.relief.net. 3 Ian Smillie and Larry Minear, The Charity of Nations: Humanitarian Among the weaknesses in the existing humanitarian GOOD HUMANITARIAN DONORSHIP GOOD HUMANITARIAN Action in a Calculating World (Bloomfield, CT: Kumarian, 2004). apparatus confirmed by the tsunami were the existence of HUMANITARIAN 2 exchange too many moving parts (e.g., multiple governments and These twin examples depict governments engaged in myriad NGOs) each with its own agenda; a weak centre, decision-making at fourth remove. The dilution of the raising questions about the capacity of the UN system to action element at each successive remove hardly inspires lead and the strategy of some donors to create a provi- confidence in fundamental changes in dysfunctional sional coalition to mobilise and orchestrate action; the policies.