COMMISSION IMPLEMENTING DECISION. of XXX

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1 EUROPEAN COMMISSION Brussels, XXX [ ](2011) XXX COMMISSION IMPLEMENTING DECISION of XXX on the financing of emergency humanitarian actions in Bangladesh from the general budget of the European Union (ECHO/BGD/BUD/2011/01000) EN EN

2 COMMISSION IMPLEMENTING DECISION of XXX on the financing of emergency humanitarian actions in Bangladesh from the general budget of the European Union (ECHO/BGD/BUD/2011/01000) THE EUROPEAN COMMISSION, Having regard to the Treaty on the Functioning of the European Union, Having regard to Council Regulation (EC) No.1257/96 of 20 June 1996 concerning humanitarian aid 1, and in particular Article 2 (a) and Article 13 thereof; Whereas: (1) As most of Bangladesh is near or at sea level, the country is extremely vulnerable to severe flooding and erosion during monsoon time, coming from the large rivers crossing the country, and this is being exacerbated by climate change factors. In particular, lack of adequate drainage and poorly maintained embankments, inappropriate construction of sluice gates along the rivers and distributary channels, unplanned shrimp farming/dams have all contributed to sedimentation and raising of river-beds that drastically reduces the carrying capacity of the rivers; (2) Heavy monsoon downpour from 1st August 2011, compounded by high tides, has flooded a number of low-lying areas, in particular in the south west part of the country. Most of the flooded areas are expected to remain water-logged for several months, with significant humanitarian impact on people living along those river basins; (3) According to Government sources, it is estimated that the floods have so far affected over 1,000,000 people and around 205,000 have been displaced and forced to seek refuge elsewhere, either in crowded institutional shelters or in appalling living conditions in makeshift shelters or under the open sky; (4) A recent field assessment 2 carried out by the European Commission to the affected area confirmed the dire humanitarian situation, with house destruction and consequent population displacement, significant loss of livelihoods due to the destruction of standing crops, seedbeds, livestock and fish ponds. As a result, the affected population face an immediate food security crisis, severe water contamination and a significant breakdown in basic sanitation; 1 2 OJ L 163, , p. 1. European Commission's assessment mission to waterlogged flood areas in south-west region of Bangladesh, August 2011 EN 1 EN

3 (5) While there has been swift government response, the magnitude of the needs appears to be far greater than the local response mobilised to address the situation. No other substantial assistance has been made available to date; (6) Considering the severity of the crisis and the high number of those fully dependent on humanitarian assistance, the limited response by the local authorities and the likely medium-term adverse impact, there are urgent needs in the areas of food assistance and nutrition, emergency water and sanitation activities, shelter, non food items, and health. Priority will also be given to operations that mainstream disaster risk reduction into relief activities as the population targeted by this Decision has little alternative but to continue to live in these disaster-prone areas; (7) To reach populations in need, humanitarian aid should be channelled through nongovernmental Organisations (NGOs) and international organisations including United Nations (UN) agencies. Therefore the European Commission should implement the budget by direct centralised management or by joint management; (8) Humanitarian aid actions financed by this Decision should be of a maximum duration of 6 months; (9) It is estimated that an amount of EUR 5,000,000 from budget article of the general budget of the European Union is necessary to provide humanitarian assistance to over 200,000 affected people, taking into account the available budget, other donors' contributions and other factors. The activities covered by this Decision may be financed in full in accordance with Article 253 of the Implementing Rules of the Financial Regulation; (10) The present Decision constitutes a financing Decision within the meaning of Article 75 of the Financial Regulation (EC, Euratom) No 1605/2002 3, Article 90 of the detailed rules for the implementation of the Financial Regulation determined by Regulation (EC, Euratom) No 2342/2002 4, and Article 15 of the internal rules on the implementation of the general budget of the European Union 5 ; (11) Since the amount does not exceed EUR 10,000,000 an opinion of the responsible committee is not necessary pursuant to Article 15 (3) of Council Regulation (EC) No 1257/96. HAS DECIDED AS FOLLOWS: Article 1 1. In accordance with the objectives and general principles of humanitarian aid, the Commission hereby approves a total amount of EUR 5,000,000 for the financing of emergency humanitarian actions in Bangladesh from budget article of the 2011 general budget of the European Union OJ L 248, , p.1. OJ L 357, ,, p.1. Commission Decision of , C/2008/773 EN 2 EN

4 2. In accordance with Article 2(a) of Council Regulation No.1257/96, the principal objective of this Decision is to respond to the emergency humanitarian needs of the most flood-affected communities hit by the 2011 Monsoon in Bangladesh. The humanitarian actions shall be implemented in the pursuance of the following specific objective: - To provide integrated relief assistance to the most vulnerable flood-affected households The full amount of this Decision is allocated to this specific objective. Article 2 1. The period for the implementation of the actions financed under this Decision shall start on 1 August Expenditure under this Decision shall be eligible from the same date. The duration of individual humanitarian aid actions financed under this Decision shall be limited to a maximum of six months. 2. If the implementation of individual actions is suspended owing to force majeure or other exceptional circumstances, the period of suspension shall not be taken into account in the implementing period of the Decision in respect of the action suspended. 3. In accordance with the contractual provisions ruling the Agreements financed under this Decision, the Commission may consider eligible those costs arising and incurred after the end of the implementing period of the action which are necessary for its winding-up. Article 3 1. In accordance with Article 253 of the Implementing Rules and having regard to the urgency of the action, the availability of other donors and other relevant operational circumstances, funds under this Decision may finance humanitarian actions in full. 2. Actions supported by this Decision will be implemented either by non-profit-making organisations which fulfil the eligibility and suitability criteria established in Article 7 of Council Regulation (EC) No 1257/96 or by international organisations. 3. The Commission shall implement the budget: * either by direct centralised management, with non-governmental organisations; * or by joint management with international organisations that are signatories to the Framework Partnership Agreements (FPA) or the Financial Administrative Framework Agreement with the UN (FAFA) and which were subject to the four pillar assessment in line with Article 53d of the Financial Regulation Article 4 This Decision shall take effect on the date of its adoption. EN 3 EN

5 Done at Brussels, For the Commission Claus Sorensen, Director General EN 4 EN

6 EUROPEAN COMMISSION DIRECTORATE-GENERAL HUMANITARIAN AID AND CIVIL PROTECTION (ECHO) Emergency Humanitarian Aid Decision Title: Commission decision on the financing of emergency humanitarian actions in Bangladesh from the general budget of the European Union Description: Emergency Humanitarian aid in favour of communities affected by floods and water-logging in Bangladesh Location of action: BANGLADESH Amount of Decision: EUR 5,000,000 Decision reference number: ECHO/BGD/BUD/2011/01000 Supporting document 1 Humanitarian context, needs and risks 1.1 Situation and context As most of Bangladesh is near or at sea level, the country is extremely vulnerable to severe flooding and erosion during monsoon time, coming from the large rivers crossing the country, and this is being exacerbated by climate change factors. In particular, lack of adequate drainage and poorly maintained embankments, inappropriate construction of sluice gates along the rivers and distributary channels, unplanned shrimp farming/dams have all contributed to sedimentation and raising of river-beds that drastically reduces the carrying capacity of the rivers. Due to a depression in the Bay of Bengal from the first week of August 2011, ten days of continuous rainfall compounded by high tides have flooded a number of low-lying areas, in particular in the south-west districts of Jessore, Shatkhira and Khulna. Most of the flooded areas are expected to remain water-logged for several months, with significant humanitarian impact on people living along those river basins. ECHO/BGD/BUD/2011/

7 According to Government sources 1, approximately 1,000,000 people (200,000 families) are being affected by the August rains 2. The numbers of affected people are likely to increase, as the water is still rising and the monsoon season lasts until October. Around 205,000 people have been forced to leave their place to seek refuge elsewhere 3. Over 115,400 houses, 353 educational institutions and some 1,000 km of roads have been partially or completely damaged 4. The floods caused embankment breaches 5, which in turn resulted in sudden-onset flooding of villages and farmland where water remains trapped as riverbeds are above the villages. While there has been a swift government response 6, the magnitude of the needs appears to be far greater than the local response mobilised to address the situation. No other substantial assistance has been made available 7 to date. In the absence of a centralised appeal, authorities at the local level (state, district and subdistrict) have stated that they would welcome assistance from international aid agencies, and are cooperative in facilitating aid agencies to provide assistance on the ground. 1.2 Identified humanitarian needs A recent DG ECHO 8 field assessment 9 in the affected areas confirmed the dire humanitarian situation, with house destruction and consequent population displacement, significant loss of livelihoods due to destruction of standing crops, seedbeds, livestock and fish ponds 10. As a result, the affected population faces an immediate food security crisis, severe water contamination and significant breakdown in basic sanitation. Access to food is critical for displaced/marooned people as well as others who have lost their means of production: A significant proportion of those affected, especially among the displaced population, are reducing the number of daily meals to very low quantity and calories; some of the families have to obtain food on credit from relatives/shops; distress selling of household assets/livestock has also been observed. There is therefore a need to provide food assistance immediately (both through in-kind and cash modalities) at least until the next Amon crop in November/December. If the Amon 1 Source : DMIC (Disaster Management Information Centre under Ministry of Food and Disaster Management, 23/8/11; Deputy Commissioner of Satkhira, 11/08/ Out of a total population of 7 million (source :preliminary results of the 2011 census) 3 The figure encompasses people in institutional shelters (44% of the displaced) those who are taking shelter on roads or staying with relatives or friends (56% of them). 4 Source : DMIC (Disaster Management Information Centre under Ministry of Food and Disaster Management, 23/8/11 and local NGO "Uttaran" situation report 2, damage assessment as of 11August 2011 (information collected from local government sources as District Commissioner, Upazila Executive Officer) 5 62 km of embankment have been partially damaged (source: ECHO crisis report sitrep n 2, 21 August 2011). 6 Government of Bangladesh (GoB) distributed cash and rice to some displaced people staying in spontaneous settlements but many of them are scattered in remote areas and therefore inaccessible. 7 As of 21 August 2011, the consortium of British Humanitarian agencies (CBHA) allocated 372,000 to the crisis, WFP distributed High energy biscuits to 60,000 displaced people in Satkhira and in view of the seriousness of the situation, IFRC (International Federation of the Red Cross) is considering launching an appeal. 8 Directorate-General for Humanitarian Aid and Civil Protection - ECHO 9 DG ECHO assessment mission to waterlogged flood areas in south-west region of Bangladesh, August WFP (Word Food program) is currently carrying out an emergency food security rapid assessment, results are not known yet. ECHO/BGD/BUD/2011/

8 harvest is seriously reduced in some areas by the water-logging situation, further support might be needed until the following Boro harvest in May/June Food security is likely to deteriorate further, on already very poor nutritional status. Recent data indicates that 53% of households with children under 5 are severely food-insecure, while nutrition data shows that 14% of under fives are wasted, 44.5% are stunted and 41.5% are underweight in the coastal belt including Satkhira District 12. A close follow-up of the nutritional situation needs to be put in place to monitor the situation closely and to be ready to intervene if Global Acute Malnutrition (GAM) rates rises further and crosses the generally accepted emergency threshold of 15% GAM. Around 31,679 hectares of crops have been partially or totally 13 damaged, with virtually 100% crop destruction. Most shrimp farms were washed away in affected areas. As agriculture and shrimp farming are the main sources of employment, the disaster will have a long-term impact on the poorer families who work as daily labourers. In this context of severe reduction of employment opportunities and sources of income, restoring livelihood as soon as possible is a priority as soon as conditions allow. Cash-for-work/Cash for training activities are best placed to ensure a basic income to the most vulnerable households as long as the level of transfers is appropriately targeted and sufficient to cover equally critical essential needs such as immediate food consumption, shelter reconstruction and livelihood recovery. These programmes could also facilitate the rehabilitation, through self-help initiatives, of more flood-resistant shelters and key community infrastructures destroyed by the floods, including flood-resistant water points (for the provision of safe drinking water), and embankments (so that crops and shelters are protected during the next floods). The water and sanitation system has also been seriously affected by the floods. This has resulted in hand pumps being inaccessible and water in the tube-wells being contaminated. Rudimentary pit latrines (and open defecation sites) are similarly inundated, resulting in the contamination of standing water that is now out of necessity being used for drinking, washing and cleaning. The problem is compounded by the presence of the decomposing corpses of livestock. This enhances the likelihood of water-borne diseases 14 (though no major outbreaks have been reported so far), which is exacerbated by the fact that the standing water is stagnant, providing a breeding ground for other disease vectors such as mosquitoes. In this scenario, the provision of regular and reliable drinking water, safe and secure sanitation, primary healthcare and promotion of personal and public hygiene are needed. The current sanitation situation is particularly difficult for girls and women. Shelter: the inundation has left over 115,400 houses flooded 15. Around 90,000 people have been living in makeshift shelters in road-side camps, while another 115, are being housed into 280 shelters, schools or other public buildings; all are in urgent need of improved emergency shelter materials, and their houses are in need of repair. Their current makeshift shelters are only made of leaves/straw/jute sticks with almost nothing on the roofs; and are 11 See annex 5, the cropping calendar in Bangladesh 12 The Food Insecurity and Nutrition Surveillance project, Round 2: June-August 2010, Brac University and Helen Keller International, EU funded 13 21,160 acres of crops fully and 20,927 acres partially 14 Victims are exposed to the threat of diseases (respiratory infections, diarrhoea, skin diseases) from being in contact with polluted water. 15 Source : local NGO "Uttaran" sitrep/damage assessment as of 11 August Source: Disaster Management Information Centre, Disaster Management Bureau, Ministry of Food and Disaster Management, Weather and Flood Situation report of 21st of August 2011 ECHO/BGD/BUD/2011/

9 too fragile to sustain more than a few days under the continuing monsoon rains and the humanitarian situation, especially for the children, will deteriorate rapidly if measures are not taken urgently to address the situation. 1.3 Risk assessment and possible constraints The access to affected areas might be challenging in some cases due to the flood situation and will require appropriate logistics to bring relief in due time. Many of the areas will remain under water for several months and some villages are rather isolated from other areas, with boats as the only means of communication. It will be important not to neglect, but rather prioritise, the most marginalized and cut-off communities despite the challenges associated with swift delivery of humanitarian aid. Heavy rains are likely to continue until the end of the monsoon, i.e. October and may further hamper the timely delivery of humanitarian aid. The situation could also be further negatively affected by discharges of Indian rivers running into Bangladesh which are already flowing well above the danger mark. 2 Proposed DG ECHO response 2.1 Rationale This Decision will allow DG ECHO to support the provision of integrated life-saving assistance to the most severely populations affected by the 2011 Monsoon, in particular in the south west region of Bangladesh. Among the most vulnerable populations, DG ECHO will be assisting in priority those who are displaced and marooned, and/or who lost all or most of their crop/livelihood activities/houses, and are therefore most exposed to immediate humanitarian risk, with particular attention to highly vulnerable groups such as female headed households, religious minorities, people with disabilities, elderly and sick people without caregivers and the most inaccessible communities. 2.2 Objectives - Principal objective: to respond to the emergency humanitarian needs of the most floodaffected communities hit by the 2011 Monsoon in Bangladesh - Specific objective: to provide integrated relief assistance to the most vulnerable floodaffected households 2.3 Components This Decision will focus on saving and preserving the life of the population affected by the floods. DG ECHO will focus on targeted food assistance and nutrition, water and sanitation, shelter, NFI, health. Priority will also be given to operations that mainstream disaster risk reduction into their relief activities as the population targeted by this Decision has little alternative but to continue to live in these disaster-prone areas. ECHO/BGD/BUD/2011/

10 The following actions will be considered per sector: Food assistance and nutrition Distribution of food rations to highly vulnerable groups where market access is problematic Cash for work Cash for training Unconditional cash transfers Short-term livelihoods protection and early recovery Nutritional surveillance (baseline survey, mapping) and nutrition response as appropriate Water and sanitation Provision of safe drinking water and improved storage Emergency rehabilitation of water sources, including floods resistant wells Provision of temporary sanitary latrines Emergency Rehabilitation of sanitation flood-resistant facilities Shelter Provision of emergency flood-resistant shelter and basic reconstruction material (plastic sheets, bamboo and roofing materials) Small-scale rehabilitation of severely damaged houses NFI Jerry cans Cooking Stoves, pots and other utensils Disaster preparedness Awareness-raising and training for volunteers, community-based organisations and authorities, initiation to Community Risks Assessments Small-scale mitigation works Health As a complement to the government's efforts, quality medical support to the most needy and vulnerable may be provided, together with hygiene education and water purification to help avoiding disease outbreaks from contaminated polluted water supplies 2.4 Complementarity and coordination with other EU services, donors and institutions As far as other EU actions are concerned, other Commission services (DEVCO) and the EEAS are supporting the CDMP (Comprehensive Disaster Management Programme) which aims at putting in place the foundations for long term sustainable risk reduction in the country. The EU contribution amounts to EUR 13,000,000 for the period This programme complements very well the EU humanitarian aid-funded community-based disaster preparedness interventions in the country. ECHO/BGD/BUD/2011/

11 2.5 Duration The duration of humanitarian aid actions shall be maximum 6 months. Expenditure under this Decision shall be eligible from 1 August If the implementation of the actions envisaged in this Decision is suspended due to force majeure or any comparable circumstance, the period of suspension will not be taken into account for the calculation of the duration of the humanitarian aid actions. Depending on the evolution of the situation in the field, the Commission reserves the right to terminate the Agreements signed with the implementing humanitarian organisations where the suspension of activities is for a period of more than one third of the total planned duration of the action. In this respect, the procedure established in the general conditions of the specific agreement will be applied. 3 Evaluation Under Article 18 of Council Regulation (EC) No.1257/96 of 20 June 1996 concerning humanitarian aid, the Commission is required to "regularly assess humanitarian aid actions financed by the Union in order to establish whether they have achieved their objectives and to produce guidelines for improving the effectiveness of subsequent actions." These evaluations are structured and organised in overarching and cross cutting issues forming part of DG ECHO's Annual Strategy such as child-related issues, the security of relief workers, respect for human rights, gender. Each year, an indicative Evaluation Programme is established after a consultative process. This programme is flexible and can be adapted to include evaluations not foreseen in the initial programme, in response to particular events or changing circumstances. More information can be obtained at: 4 Management Issues Humanitarian aid actions funded by the European Union are implemented by NGOs and the Red Cross National Societies on the basis of Framework Partnership Agreements (FPA), by Specialised Agencies of the Member States and by United Nations agencies based on the Financial Administrative Framework Agreement with the UN (FAFA) in conformity with Article 163 of the Implementing Rules of the Financial Regulation. These Framework agreements define the criteria for attributing grant agreements and financing agreements in accordance with Article 90 of the Implementing Rules and may be found at For NGOs, Specialised Agencies of the Member States, Red Cross National Societies and international organisations not complying with the requirements set up in the Financial Regulation applicable to the general budget of the European Union for joint management, actions will be managed by direct centralised management. For international organisations identified as potential partners for implementing the Decision, actions will be managed under joint management. Individual grants are awarded on the basis of the criteria enumerated in Article 7.2 of the Humanitarian Aid Regulation, such as the technical and financial capacity, readiness and experience, and results of previous interventions. 5 Annexes ECHO/BGD/BUD/2011/

12 Annex 1 - Summary decision matrix (table) Principal objective To respond to the emergency humanitarian needs of the most flood-affected communities hit by the 2011 Monsoon in Bangladesh Specific objectives Allocated amount by specific objective (EUR) Geographical area of operation Activities Potential partners 17 To provide integrated relief assistance to the most vulnerable flood-affected households 5,000,000 Districts affected by floods and water-logging Food assistance and nutrition, Shelter, watsan, NFI, DP, health Direct centralised management - ACF - FRA - ACTIONAID - CAFOD - CARE - UK - CHRISTIAN AID - UK - CONCERN WORLDWIDE - DANCHURCHAID - DNK - HANDICAP (FR) - ISLAMIC RELIEF - MSF - B - MSF - NLD - MUSLIMAID - OXFAM - UK - SAVE THE CHILDREN - UK - SOLIDARITES Joint management - IFRC-FICR - WFP-PAM TOTAL 5,000, ACTION CONTRE LA FAIM, (FR),ACTIONAID,ARTSEN ZONDER GRENZEN (NLD),CARE INTERNATIONAL UK,CATHOLIC AGENCY FOR OVERSEAS DEVELOPMENT (GBR),CHRISTIAN AID (GBR),CONCERN WORLDWIDE, (IRL),FEDERATION INTERNATIONALE DES SOCIETES DE LA CROIX-ROUGE ET DU CROISSANT ROUGE,FOLKEKIRKENS NODHJAELP, (FKN),HANDICAP INTERNATIONAL (FR),ISLAMIC RELIEF WORLDWIDE,MEDECINS SANS FRONTIERES BELGIQUE/ARTSEN ZONDER GRENZEN BELGIE(BEL),Muslim Aid,OXFAM (GB),SOLIDARITES INTERNATIONAL, (FR),THE SAVE THE CHILDREN FUND (GBR),WORLD FOOD PROGRAM ECHO/BGD/BUD/2011/

13 Annex 2 - List of previous DG ECHO decisions In 2008, DG ECHO responded to a similar waterlogging situation in the two Districts of Jessore and Shatkhira, to address the needs of over 196,000 people affected with EUR 1,500,000. This response has been successful and contributed in reducing vulnerability and humanitarian sufferings of the waterlogged people. Effective coordination with relevant stakeholders including the government authorities was also possible. DG ECHO has also been present in the country with its Disaster Preparedness Programme (called DIPECHO) since Under the on-going 6 th DIPECHO Action Plan for South Asia (ECHO/DIP/BUD/2011/93000; EUR 12,000,000), one consolidated programme (including 6 partners) are currently being implemented in Bangladesh for a total amount of EUR 2,825,000. List of previous DG ECHO operations in BANGLADESH Decision Number Decision Type EUR EUR EUR ECHO/BGD/BUD/2009/01000 Ad hoc 1,000,000 ECHO/BGD/BUD/2009/02000 Emergency 1,000,000 ECHO/BGD/BUD/2009/03000 Emergency 4,000,000 ECHO/BGD/BUD/2010/01000 Ad hoc 3,000,000 ECHO/BGD/BUD/2010/02000 Emergency 3,800,000 ECHO/BGD/BUD/2010/03000 Emergency 7,000,000 ECHO/BGD/BUD/2011/91000 Ad hoc 13,000,000 Subtotal 6,000,000 13,800,000 13,000,000 TOTAL 32,800,000 Date : 23/08/2011 Source : HOPE (*) decisions with more than one country ECHO/BGD/BUD/2011/

14 Annex 3 - Overview table of the humanitarian donor contributions Donors in BANGLADESH over the last 12 months 1. EU Member States (*) 2. European Commission EUR EUR Finland 450,000 DG ECHO 55,786,258 Germany 970,000 Italy 613,636 Luxembourg 96,385 Subtotal 2,130,021 Subtotal 55,786,258 TOTAL 57,916,279 Date : 23/08/2011 (*) Source : DG ECHO 14 Points reports. Empty cells : no information or no contribution. ECHO/BGD/BUD/2011/

15 Annex 4 - Maps ECHO/BGD/BUD/2011/

16 Annex 5 : Cropping calendar in Bangladesh ECHO/BGD/BUD/2011/