field implementation plan syrian arab republic

Transcription

1 field implementation plan syrian arab republic

2 Biennium Plans 1. Gaza 2. Jordan 3. Lebanon 4. Syrian Arab Republic 5. West Bank 6. Headquarters Implementation Plan This Field Implementation Plan (FIP) has been developed in accordance with the UNRWA Medium Term Strategy for It articulates the field-level approaches that will guide the work of UNRWA over the two-year period , and the plans, activities and budgets through which goals will be achieved locally. It describes how UNRWA seeks to accomplish its programme objectives in a decentralised institutional setting, while allowing the operational flexibility demanded by specific refugee needs and priorities. Indicators are also identified, against which results can be measured. Cover photo: A student displays her work in a school in Damascus. She attends one of the 57 UNRWA schools operational across Syria on 13 February The remaining 61 schools were closed as a result of hostilities in the surrounding area, or due to access problems for staff and students alike. Education services continue wherever possible, but approximately two-thirds of all enrolled students are unable to attend regular classes. UNRWA UNRWA 2013 This Field Implementation Plan was prepared by UNRWA (Syria Field Office), with technical support from the Department of Planning. About UNRWA UNRWA is a United Nations agency established by the General Assembly in 1949 and is mandated to provide assistance and protection to a population of some 5 million registered Palestine refugees. Its mission is to help Palestine refugees in Jordan, Lebanon, Syria, West Bank and the Gaza Strip to achieve their full potential in human development, pending a just solution to their plight. UNRWA s services encompass education, health care, relief and social services, camp infrastructure and improvement, microfinance and emergency assistance. UNRWA is funded almost entirely by voluntary contributions. Department of Planning Headquarters - Amman Amman, Jordan Tel: +962 (6)

3 Contents 1 Introduction Situation Analysis Strategic Priorities Human Development Goals GOAL ONE: A LONG AND HEALTHY LIFE GOAL TWO: KNOWLEDGE AND SKILLS GOAL THREE: A DECENT STANDARD OF LIVING GOAL FOUR: HUMAN RIGHTS ENJOYED TO THE FULLEST GOAL FIVE: EFFECTIVE AND EFFICIENT GOVERNANCE AND SUPPORT Implementation, Monitoring and Reporting Results Annexes ANNEX 1: INTEGRATED MONITORING AND BUDGET MATRIX ANNEX 2: FINANCIAL PERFORMANCE BY RESOURCES ANNEX 3: TABLE OF PRIORITY PROJECTS ANNEX 4: RISK MANAGEMENT PLANS FOR IMPLEMENTATION PLAN TOP RISKS... 47

4 Acronyms and Abbreviations CBO EMS ERT FHT FIP Community Based Organisation Emergency Management Structure Emergency Response Team Family Health Team Field Implementation Plan GAPAR General Authority for Palestine Arab Refugees GBV GF HDG HIP IDP IFRC IMC IPSAS LFO MTS Gender-Based Violence General Fund Human Development Goal Headquarters Implementation Plan Internally Displaced Person International Federation of Red Cross and Red Crescent Societies International Medical Corps International Public Sector Accounting Standards Lebanon Field Office Medium Term Strategy NCD NFI NGO NRC OD PMTF RBM SFO Non-Communicable Disease Non-Food Item Non Government Organisation Norwegian Refugee Council Organisational Development Proxy Means Testing Formula Results Based Monitoring Syria Field Office SHARP Syria Humanitarian Assistance Response Plan UNCT UN Country Team UNDSS UN Department of Safety and Security UNRWA United Nations Relief and Works Agency for Palestine Refugees UR USD WFP Unfunded Requirement United States Dollar World Food Programme

5 Foreword By Filippo Grandi Commissioner-General I am pleased to present UNRWA s biennium plans, made up of five Field Implementation Plans and a consolidated Headquarters Implementation Plan. These plans describe how the Agency will assist Palestine refugees across the occupied Palestinian territories (opt), Jordan, Lebanon and Syria and serve as the final set of biennium plans in furtherance of the Agency s Medium Term Strategy (MTS). The plans build on the recommendaitons of the MTS mid-term evaluation, the guidance and direction of UNRWA s Advisory Committee and the successes and challenges being experienced in the implementation of the biennium plans. The environment in which the Agency operates in all fields of operation is requiring a response from UNRWA that is a combination of emergency response and human development interventions. UNRWA remains deeply engaged in responding to the on-going armed conflict in Syria and its spillover effects in the region. UNRWA s Syria, Jordan and Lebanon operations are facing unprecedented strains in their capacity to address the humanitarian needs arising out of this crisis and the Agency is deeply concerned about the large and growing number of civilian victims and deaths resulting from it. The economic blockade, movement restrictions, settlements and their expansion and the barrier continue to seriously negatively impact the human development of Palestinians and Palestine refugees in Palestine. This situation is further exacerbated by continued sporadic violence, such as in the Gaza strip. Central to the Agency s vision for is the commitment to the provision of effective and efficient services to Palestine refugees, supported by UNRWA s on-going reform processes. Early indications suggest UNRWA Commissioner-General Filippo Grandi that the Agency s application of a new Family Health Team approach is, as foreseen, decreasing the number of doctor consultations per day, resulting in greater doctor-patient contact time and patient satisfaction. Reforms in education are working to strengthen the quality of UNRWA s educational services while generating cost efficiencies for the organization. These reforms are vital in helping equip refugees with the skills required to achieve a decent standard of living. This work is supported by strengthening systems and management support services in UNRWA best exemplified by the implementation of an Enterprise Resource Planning system and continued strengthening of results-based management processes and practices. As the Implementation Plans reflect, funding shortfalls are having a serious impact on the Agency s operations. Due in part to the global financial crisis, financial support to UNRWA is not keeping pace with an increased demand for services caused by growing numbers of registered refugees, expanding needs, and deepening poverty. This challenges the Agency in its efforts to roll out reforms, respond to emerging needs and maintain quality core services. Within the context of a resource mobilization strategy, UNRWA will continue to appeal to all stakeholders 4

6 to provide the support needed to fulfil its General Assembly mandate to promote the human development of all Palestine refugees. Palestine refugee communities continue to wait for peace and a just and lasting solution to their plight, and the shared contributions of the international community are critical to maintaining this possibility and the hope of Palestine refuges. This set of biennium plans provides the framework for UNRWA s commitment to Palestine refugees, and the areas of collaboration with host Governments and the international community. It is through their implementation that we must all work together to meet the needs, aspirations and human development goals of Palestine refugees. Yours sincerely, Filippo Grandi 5

7 1 Introduction The United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) is currently operating under the context of the Medium Term Strategy (MTS). In support of this it develops biennium plans, or Field Implementation Plans (FIPs), to direct and support programme implementation. This plan for is the final biennium plan in support of the current MTS and builds on the successes and challenges of the biennium plan. It serves as UNRWA s strategy for assisting Palestine refugees in the Syrian Arab Republic 1 during This FIP provides a comprehensive overview of Syria Field s strategic choices, outcomes and outputs contributing to the achievement of the Agency s four Human Development Goals (HDGs) and a fifth management goal. 2 These goals are supported by seventeen strategic objectives and measurable indicators, both those common across UNRWA and a specific set for the Syrian context. The plan, consistent with UN planning scenarios, assumes that the current situation in Syria will continue, or worsen. It therefore focuses on supporting the UN s regional humanitarian response to the Syria crisis, and on providing lifesaving humanitarian assistance and on-going UNRWA services to Palestine refugees inside Syria, while also continuing to advocate for their rights. UNRWA has extensive experience operating in crises and emergencies, and will build on this experience to ensure that Palestine refugees inside Syria benefit from its existing human resources, infrastructure and logistical assets. Since 2010 the number of registered Palestine refugees living inside Syria has increased from 476,801 to 525,525 (as of November 2012). UNRWA is responding to 1 Henceforth referred to in this document as Syria 2 (1) A long and healthy life; (2) Knowledge and skills; (3) A decent standard of living; (4) Human rights enjoyed to the fullest; (5) Effective and efficient governance and support. the challenges of the increasing needs of its refugee population in Syria and continues to provide them with high quality and relevant services. A April 2013 UNRWA needs assessments found that the majority of the entire Palestine refugee population currently remaining in Syria is now deemed vulnerable and in need of support by UNRWA (over 420,000 out of 525,525 Palestine refugees), and close to 70 per cent have already approached UNRWA for additional emergency assistance (360,000). UNRWA is the largest UN agency in Syria and employs approximately 3,700 staff. In 2013 UNRWA s General Fund budget for Syria is approximately USD 44 million; in addition UNRWA is delivering more than USD 37 million from donors in assistance to the Syria humanitarian response. Prior to the crisis in Syria, 27 per cent of Palestine refugees were living below the national poverty line, more than double that of the overall population (12 per cent). 3 Despite this, Palestine refugees enjoyed similar civil and economic rights as Syrian citizens. While these rights have not changed, Palestine refugees have been seriously affected by Syria s economic downturn. The crisis has also highlighted the precarious situation of Palestine refugees in the region more broadly, as evidenced by the Government of Jordan s policy to prevent Palestine refugees from Syria from seeking refuge in Jordan. The operating context in Syria has changed substantially since the biennium plan was developed. When the plans were drafted Syria was relatively stable, though experiencing isolated outbursts of conflict. The biennium process is characterised by instability throughout the country, resulting in the substantial displacement and movement of Palestine refugees and a deepening humanitarian crisis. 3 UNRWA Needs Assessment, May

8 While levels of displacement are hard to accurately gauge, it is estimated that close to a half of UNRWA s beneficiary population have dealt with periods of displacement from camps and gatherings, or are currently displaced. 4 At the time of writing the Yarmouk area of Damascus was largely empty and conflict was impacting upon the majority of areas where Palestine refugees live. In addition, 70 per cent of UNRWA staff have experienced displacement, many of them several times. Given the context, UNRWA s operation in Syria is shifting to a more direct focus on humanitarian responses and livelihood and social stabilization activities. Therefore the priorities for will be: Targeted food assistance; Targeted cash and non-food item assistance for the most vulnerable segments of the Palestine refugee population; The provision of shelters for displaced people; Advocacy for the rights, needs and neutrality of Palestine refugees in Syria; Ongoing and emergency health, education, psychosocialand vocational training support; and Security upgrades for refugee facilities and UNRWA installations. All registered refugees are entitled to access all UNRWA services, regardless of where they are in Syria. Prior to the crisis, approximately three quarters of all Palestine refugees in Syria lived in Damascus and its suburbs. This has largely remained constant, with slightly more people finding shelter in Damascus, as highlighted below. Table 1: Population and geographical distribution of Palestine Refugees in Syria Location Household Persons Male Female North 8,935 36,918 18,566 18,348 Central 11,346 44,564 22, Damascus 102, , , ,508 South 6,951 30,546 15,362 15,181 TOTAL 129, , , ,185 Data from the November 2012 UNRWA Needs Assessment. This plan is based on an UNRWA November 2012 needs assessment, as well secondary data collected from the Government of the Syrian Arab Republic, the UN and other national and international partners. The changing situation of the Palestine refugees in Syria is being monitored by UNRWA and the Agency will be continually adapting its response through to reflect incountry realities. In implementing the strategy the Syria Field Office (SFO) will continue to work in close cooperation with the General Authority for Palestine Arab Refugees in the Syrian Arab Republic (GAPAR), the UN Syria country team, national partners and the broader international community to ensure effective services and aid delivery and coordination. The Agency will also work closely with other UNRWA field offices and partners to ensure cross-border consistency and cooperation in the provision of services to Palestine refugees. 4 UNRWA Needs Assessment, November

9 2 Situation Analysis Country Context The events in Syria since March 2011 have resulted in a significant increase in humanitarian needs throughout the country. The crisis has resulted in significant casualties, increased number of people with special needs, orphans, widows, widespread displacement, increased social tension, and traumas amongst others. It has affected national infrastructure including water and power utilities, schools, medical and other social service facilities, agricultural production and the pharmaceutical industry. Shortages of fuel and regular disruptions in telecommunications and power supplies affect the whole economy. Economically, there are challenges in internal and external trade, coupled with the rising costs of imports due to devaluation of the local currency and reduced access to international markets for Syrian goods. These have resulted in shortages of goods, including basic food items and medical supplies, alongside significant price increases for those goods. 5 Economic sanctions have further aggravated the situation as international transactions become more difficult for both the public and the private sectors. Rental costs for displaced Palestine refugees are unsustainably high, and combined with the continuing degradation of coping mechanisms and social safety nets, have resulted in rapidly increasing vulnerability. These factors greatly impact the cost of living for Palestine refugees leading to deteriorated purchasing power of crisis affected people. UNRWA s in-country 5 Dec 2012, Humanitarian Assistance Response Plan for Syria, 1 January-30 June 2013, Government of the Syrian Arab Republic (prepared in coordination with the United Nations System). operating costs have dramatically increased. The United Nations has significantly increased its operating capacity in Syria and its support for people living in Syria who have been affected by the crisis. Through the Syria Humanitarian Assistance Response Plan ( SHARP ), the United Nations has sought significant support for the needs of conflict-affected people from the international community. UNRWA has, through the SHARP, sought significant support from the international community to meet the increased needs of Palestine refugees. UNRWA has played an effective role in the working groups that the UN has established in Syria, in supporting improved and effective coordination of humanitarian assistance. UNRWA will continue supporting clusters and sector working groups in that have been established to support the broader humanitarian response to the emergency in Syria. Palestine refugees have remained neutral within the wider conflict but continue to suffer the effects of armed clashes and shelling. Many Palestine refugees have been killed or injured producing a rapid increase in the number of orphans, femaleheaded households and people with disabilities. A pattern of continuous, repetitive displacement has emerged, whereby families flee armed clashes in one area, only to be displaced again when the conflict approaches their new locations. Those that choose to stay are typically those that cannot afford to leave, with direct armed conflict, movement restrictions, shortages of essential supplies and lack of access to water and electricity compounding their already high levels of poverty. At the time of writing, many Palestine refugee camps and gatherings, particularly those in Rif Damascus, experienced daily shelling and there were large scale displacements from Yarmouk, 3

10 Sbeineh, Khan Eshieh, Sit Zeinab, Husseiniyeh and Ein el Tal in Aleppo. Camps in Homs and Dera a have also experienced intense and on-going armed conflict. Prior to March 2011, Palestine refugees were already among the poorest communities in Syria, with over a quarter estimated to be living below the poverty line (USD 2 dollars per day) and over 12 per cent unable to meet their basic food needs. The armed conflict, sanctions and other economic strains have further exacerbated this, resulting in a sharp rise in essential commodity price, placing them out of reach for the thousands of Palestine refugees who were destitute even prior to the crisis. Female-headed households, the elderly, disabled, and chronically ill have been amongst the most severely affected. As the Syrian economy contracted, unemployment deepened and many more Palestine refugees lost their jobs or were unable to find work. The crisis has affected humanitarian access and disrupted education, vocational training and health services, exacerbating stress and uncertainty in refugee communities. UNRWA operations are increasingly affected by the crisis as many camps require cross-line operations. Many UNRWA facilities have sustained major damages, assets either like cars and trucks have been looted and staff members numbering among the casualties or detained. Despite the complex security situation and inaccessibility as a result of the armed conflict. UNRWA managed to support large numbers of displaced, including Syrians, with temporary shelter in its schools and in community facilities. As at May 2013 UNRWA facilities are currently housing over 8,250 Syrian and Palestinian IDPs, and over a further 4,000 displaced Palestine refugees have been are being supported in non- UNRWA facilities. 4 Six UNRWA staff members have tragically lost their lives since the crisis began and in addition to the violence of conflict every week brings more stories of kidnappings, disappearances, car-jackings, including among staff and their friends and families. Over 160 national staff members have taken leave without pay and many have left the country entirely. Those that continue courageously to work on behalf of their communities suffer extreme distress and anxiety. UNRWA s staff and operational capacity is being maintained, enabling the Agency to offer its regular and relief support to refugees and affected families. While modalities of service delivery will continue to change, UNRWA will continue to deliver basic services and urgent relief support to the Palestine refugee population throughout UNRWA in Syria s delivery response from the start of the crisis to May 2013 Service Delivery Response Cash Assistance and Shelter Provided to 112,000 families (401,000 individuals, average USD 42 per person) Provision Up to 11,400 IDPs in UNRWA collective centres Food Assistance Provided to 42,566 families (170,000 individuals) NFI 35,000 mattresses and 53,000 blankets have been distributed, along with 2,800 hygiene kits Health Care Approximately 23,000 refugees served at UNRWA clinics Approximately 3,600 refugees provided with secondary/tertiary care at facilities. Approximately 20,000 refugees provided with essential and lifesaving drugs. Environmental Health One garbage collection truck provided camps with regular garbage collection services. Education Approximately 67,000 children enrolled at UNRWA schools, but only 24,000 able to attend regular classes Education staff trained in implementing alternative education modalities Alternative education materials (home study and DVDs) developed. Safety and Security UNRWA 24hr Operations Centre established 36 staff members trained in emergency response and hazardous environment awareness

11 Capacity and Management Source: UNRWA 11 staff members trained in armoured vehicle operations UNRWA facilities upgraded for enhanced security NRC-seconded Humanitarian Coordinator provided support on protection and humanitarian assessments Two temporary emergency staff from Gaza brought in to support finance and project management UNRWA area staff provided support to increase their resilience and ability to stay on the job delivering humanitarian services. Needs Assessments: Data and Analysis Over 420,000 refugees are in urgent need of support for their food, shelter and non-food items (NFI). The situation for Palestine refugees in Syria is acute, and prolonged humanitarian needs are expected to persist for several years. Existing resilience, coping mechanisms and social safety nets are diminishing, increasing the urgency and demand for UNRWA services exponentially. Many Palestine refugees who had previously been self-reliant have found themselves now relying on UNRWA for essential support, while aid dependency has deepened among those already living in hardship. In tandem security risks are increasing rapidly, constraining UNRWA s operational capacity while needs increase. Priority needs The priority needs of affected populations differ from one area to another. In the directly affected areas, which continue to shift and expand, lifesaving measures including food assistance, water supplies, nutrition and emergency medical services, and NFIs are the priority. These are in need of being scaled up. 6 Those unable to return to their homes are in need of additional assistance, including food, mattresses and bedding, kitchen and hygiene sets, clothes, baby supplies and other basic items. 6 The assessment of needs comes from the Humanitarian Assistance Response Plan for Syria, ibid. 129,092 families (521,843 people) have reported a need for fuel. The homes of more than 1,800 Palestine refugees have been partially damaged, with close to 900 completely demolished. In addition, safe spaces are increasingly diminishing. As the resources of host families are becoming increasingly exhausted, they too are in need of additional support, including through the provision of food and NFIs. The urgency in delivering these needs cannot be under-estimated, and response times in providing services are often day-to-day, hour by hour. There is a widespread need for access to psychosocial support to better enable people to cope with their negative experiences. Access to water Adequate sanitary conditions and access to clean water are crucial in temporary settings to avoid the outbreak of diseases. Of the 503 water wells functional in UNRWA serviced areas, only 15 are estimated to be unaffected by the crisis. Access to income Many have lost their sources of income and require cash assistance and income-generating activities in order to cover their immediate requirements for a minimum standard of living and avoid resorting to negative coping strategies. Access to services and facilities Schools, medical facilities and other public infrastructure and services in indirectly affected areas need to be upgraded or rehabilitated in order to cope with the additional number of people and needs. To December 2012, 31 UNRWA schools are reported as damaged, with 106 operational. 82 of the Agency s schools are in Damascus, and have been heavily affected by the displacement in Yarmouk. 5

12 Access to Education Access to education is critical for the children affected by the events. Figures provided by the Ministry of Education in Syria show that some governorates have very low school attendance rates, because schools have been targeted or are hosting people that left their homes. Future challenges UNRWA and interlocutors in Syria fear the situation will further deteriorate, anticipating a continued break-down of the infrastructure that supports normal life. UNRWA is also concerned about ensuring access to and from camps and gatherings for both Palestine refugees and UNRWA services. Palestine refugees have limited flight options. Due to constraints imposed on Palestine refugees by neighbouring countries, it is expected that the bulk of the Palestine refugee community will remain inside Syria. Given this, the above detailed needs are projected to remain, and in some areas, increase throughout the planning cycle. There are also indications that the banking system is under unprecedented pressure. At present UNRWA remains able to use local banking systems to support its cash assistance programme, though in the absence of this it can rely on direct physical distributions. A risk facing the cash assistance programme is that the banking sector in Syria will not be able to provide cash and support for operations in Syria. The feasibility of this assistance would be reconsidered in this circumstance. Previously UNRWA procured many of its goods from within the country. Increased instability, rising inflation and transportation challenges including cross-lines operations are making access to major commodities, like food, pharmaceuticals and fuel more costly and difficult to obtain. UNRWA is working to meet these challenges through alternate procurement and transport modalities in cooperation with partners. Planning Assumptions UNRWA s main planning assumptions for the Syria crisis are: Continued protracted conflict. Continued deterioration of the economy and infrastructure. Continued population displacement and refugee outflow. More specifically, There will be a significant and widespread shrinking of humanitarian space, with regular closure of UNRWA facilities, and assets are at risk. UNRWA and Palestine refugees in Syria will continue to depend on the assistance and support of the Syrian authorities and GAPAR. UNRWA will collaborate with its humanitarian partners, particularly in planning, delivery and response to IDPs within Syria and refugees in Jordan and/or Lebanon. UNRWA will work with in-country partners, including civil society organizations, in providing and sourcing assistance for Palestine refugees. Palestine refugees will continue to benefit from Agency advocacy on their behalf with the host governments and other relevant stakeholders. Contingency plans relying on area staff and employing remote or partially remote operations will be employed should security conditions dictate evacuation of essential international staff from Syria. UNRWA will continue to improve its security and risk management system that operates in close collaboration with the UN Department of Safety and Security (UNDSS) and within the UN Security Management System. While UNRWA s primary planning assumption is based on continued protracted armed conflict, the Agency is simultaneously planning for stabilisation and an early recovery phase. This FIP is a living document and shall be reviewed regularly 6

13 to adapt UNRWA s response and preparedness measures while ensuring efficiency and effectiveness. Preparedness measures incorporate training programmes, shelter rehabilitation, micro-credit and small business support while proper monitoring and viable communication systems are in place. In adapting to the current scenario UNRWA has significantly expanded coordination and cooperation with UN Country Team (UNCT) partners, providing joint distributions in mixed Syrian/Palestinian neighbourhoods and distributing assistance to opposition controlled areas through interagency relief convoys. UNRWA is also undertaking partnerships with nongovernmental organisations (NGOs). The Agency is also investigating the establishment of integrated procurement systems with other agencies. Risk Analysis, Management and Contingency Planning The increasing challenges of humanitarian access and the likelihood of further, and possible intensified conflict require continuous risk analysis, risk management and contingency planning. Operationally the risks faced by UNRWA in Syria are consistent with Agency-wide core risks related to the socio-political, financial and security context, though these are heightened in the context of Syria. The SFO s primary risks centre on an escalating security situation with corresponding demands for services in the context of limited operating space. More specifically, the key risks are the following: Rapidly increasing costs of basic goods. Increasing demands and decreasing operational capacities due to limited finances, human resources and humanitarian space. Reduced in-country capacity to provide services, including through the health, education and banking sectors. Increasing demands and challenges meeting the needs of the beneficiary community. 7 Responding to the needs of refugees and being conflict sensitive to the needs of the host community. Loss of UNRWA staff due to insecurity, leaving their posts and seeking refuge in a different country and direct security threats to the Agency. Loss of Agency facilities, assets and office space. Palestine refugees perceived as a party to the conflict. UNRWA s contingency planning in Syria focuses on the continuity of operations and supply chains. Within Syria, the Agency has shifted its team into a humanitarian and emergency response focused structure. This includes decentralising operations to allow for continued delivery in instances where communications and movement with Damascus may be restricted. In addition, UNRWA s emergency roster staff has received emergency training and remains prepared for deployment for the Syria response as appropriate. Supply chain challenges are being met through various modalities including remote or partially remote management from Amman and/or Beirut. UNRWA uses international, national and local procurement to mitigate the lack of supply. Humanitarian access to areas of insecurity will continue to be guided by the SFO s operations centre in coordination with UN Department of Safety and Security. To ensure continued access to areas of insecurity the Agency is enhancing and developing partnerships with humanitarian actors, national and international. It has also established partners with community organisations in areas of Palestine refugee concentration to ensure that the distribution of goods to Palestine refugees is done in tandem with the distribution of goods to host communities. The last quarter of 2012 saw the neutrality of Palestine refugees come under huge pressure, with the crisis increasingly disturbing their communities. The risk of increased tensions between Palestine refugees and other Syrian nationals is a

14 heightened one. The rationale of socioeconomic resilience will remain relevant and critical in The vast majority of Palestine refugees maintain a neutral stance and refrain from involvement in the conflict. In tandem with its humanitarian and human development work, the Agency will continue to remind staff and refugees of the importance of maintaining this stance. In order to manage and respond to the risks, the SFO will periodically review and update its risk register. 8

15 3 Strategic Priorities UNRWA s five overarching goals will guide its strategic priorities in Syria. Within these goals the focus will be on the provision of core services, coupled with humanitarian support. In doing this, UNRWA aims to enhance the socioeconomic resilience of Palestine refugees, and strengthen their ability to cope with the on-going armed conflict. UNRWA s humanitarian support will be delivered in close consultation and, where relevant, partnership with its sister United Nations agencies, non-governmental and community organisations. This will help to ensure aid effectiveness and prevent duplication. UNRWA will participate in inter-agency convoys to support streamlined and secure provision of assistance to refugees in need in Syria. The Agency will direct its support to the provision of cash, food and non-food items, shelter, emergency health psychosocial support, and education services. Implementation of UNRWA s management goal 5, Effective and Efficient Governance and Support will be a key priority in supporting UNRWA s ongoing humanitarian programme delivery. There are increasing challenges around security, logistics and procurement, and an increased need to be more flexible and creative in service delivery. Strategic Priorities by Human Development Goal Building on the data collected in the UNRWA November 2012 and April 2013 Needs Assessments and on the planning assumptions for , a prioritisation exercise was undertaken for the biennium planning process and a logical framework developed. The logical framework documents the goals, targets, outputs and indicators that will be used to guide and monitor the SFO s work for The following provides a short summary of the key strategic priorities that UNRWA will focus on in in Syria. These are further elaborated on in section 4 of this document and in the logical framework (Annex I) and additional annex. Goal 1: A long and healthy life UNRWA will work to ensure that Palestine refugees in Syria will continue to have access to primary, secondary and lifesaving health care. Where the security situation permits, UNRWA will continue to operate primary health centres and health points for Palestine refugees, including those internally displaced, and to provide essential drugs, medicines and basic hygiene needs. Ensuring the health status and reducing the spread of disease amongst internally displaced persons (IDPs) in camps and IDP centres will be a priority. In addition, the Agency will work to ensure that Palestine refugees in Syria are provided with adequate drinking water, sanitation and solid waste collection services. Where the security and staffing situation permits, UNRWA will seek to continue the implementation of Agency-wide reform initiatives such as the Family Health Team approach. UNRWA will engage in the United Nations coordinated support for the response in Syria, through participation in the Health Cluster group. Goal 2: Knowledge and skills As a response to the conflict and the impact of it on basic social, economic and productive infrastructure and loss of skills, UNRWA will provide short and longterm skills development building initiatives targeting youth (both men and women). This will prepare for the recovery and reconstruction phase. UNRWA will work to support Palestine refugee children to be able to continue their education despite conflict and displacement. Prior to the crisis, UNRWA was providing basic education up to grade nine to over 66,000 children. Since the crisis started, UNRWA s commitment to the education of Palestine refugee children in Syria has not changed and extensive remedial learning activities 9

16 have taken place to support the educational needs of children affected by conflict and lack of access. The SFO has also worked in partnership with the UNRWA Lebanon Field Office (LFO) to support the education of refugee children who have sought temporary refuge in Lebanon. In UNRWA will build on the initial steps to support education in the current crisis by facilitating flexible approaches to delivering education, with its regular education services provided through its network of schools in Syria, and through the development of appropriate distance and home-based learning support, including satellite television classrooms. UNRWA will engage in the United Nations coordinated support for the response in Syria, through participation in the Education Cluster group. Goal 3: A decent standard of living UNRWA will continue its significant efforts to support Palestine refugees to achieve a decent standard of living, which is now a greater challenge than ever before in Syria. UNRWA has responded to this challenge by piloting cash assistance as a means of social transfer, in an effort to bridge the ever-widening poverty gap in Syria and contribute to the protection agenda. This will continue to be a central pillar of UNRWA s support for Palestine refugees in UNRWA will also focus on meeting the immediate needs of the displaced in Syria through the extensive supply of food parcels and non-food item distributions in IDP collective centres and in the community. UNRWA will undertake a labour market survey, and use it to provide refugees with the training to support their livelihoods and help them to recover from conflict. UNRWA will also seek to support refugees to be better able to cope with their accommodation needs in an environment where appropriate and safe shelters are difficult to find and rental costs are exorbitant. Temporary shelters for IDPs will be maintained and the likely need for them increased. These shelters will be supported with regular maintenance work. UNRWA will engage in the United Nations 10 coordinated support for the response in Syria, through participation in the logistics cluster and sector groups relating to nonfood items, food and shelter. Goal 4: Human rights enjoyed to the fullest UNRWA will enhance its protection strategy with a focus on continued advocacy for Palestine refugees in Syria and providing support to newly vulnerable families. In addition, protection programming will be strengthened and expanded to support Palestine refugees where issues related to rule of law and neutrality emerges. A particular focus will be provided to protection issues affecting IDP populations sheltering in UNRWA facilities. To the greatest degree possible, service delivery will adhere to UNRWA protection standards. On-going support will be provided to Palestine Iraqi refugees in the form of cash and rent assistance while they await resettlement in third countries. This support will be provided in partnership with the United Nations High Commissioner for Refugees. The registration of refugees will continue, critical to ensuring that their rights as Palestine refugees are assured. Partnerships with community-based organisations will continue, with a focus on the delivery of humanitarian services. In an environment of crisis there will sadly be increased survivors of gender-based violence (GBV). UNRWA s programming will focus on prevention and response to gender-based violence. The response includes access to social and legal services and protection. UNRWA will deliver this assistance in concert with UN agencies and partner organisations working in this area. UNRWA will continue to engage in the United Nations support for protection in responding to the crisis in Syria, through participation in the Protection sector working group.

17 Goal 5: Effective and efficient governance and support Increased levels of conflict have affected UNRWA s regular service provision, with issues of access, supply and theft of much needed humanitarian support. In particular, procurement is becoming more challenging as in-country supply of goods reduces, with reduced access to viable border crossings, and is becoming increasingly expensive. To address this, the Agency is developing new supply chain strategies and working with UN partners such as the World Food Programme (WFP) and the United Nations High Commissioner for Refugees to strengthen access to goods and supplies. UNRWA will also work in partnership with UN agencies to provide support in aid convoys to help ensure that much needed supplies reach beneficiaries. UNRWA will also seek to further enhance the security of UNRWA staff and facilities in order to provide emergency services to refugees. Monitoring of UNRWA programming will continue to ensure that the best possible services, given the context, are delivered. Human resources services will focus on ensuring that UNRWA is best placed to respond flexibly to its regular programming and humanitarian needs. Cross-cutting Issues Disability: In an environment of conflict, people with disabilities are among the hardest hit, with reduced mobility and access to services. Prior to the crisis, of UNRWA s beneficiary population, 15,766 people self-identified as disabled. The majority of these people live in and around Damascus. In UNRWA s November 2012 needs assessment it was found that an additional 368 people had become disabled by conflict. UNRWA will seek to prioritise support to people with disabilities, especially to provide accommodation and cash assistance support to those who are internally displaced and to ensure that the Agency s support reaches them. This 11 will also include the provision of wheelchairs and prosthetic devices. Gender: Gender is mainstreamed as a cross-cutting issue in all UNRWA programmes and projects in Syria, guided by the United Nations Security Council resolution In addition to mainstreaming, UNRWA has a specific focus on vulnerable women in its regular programming and urgent relief response. Female-headed households are particularly vulnerable in situations of unrest and conflict. There are currently 24,331 female-headed households, one fifth of the UNRWA beneficiary population in Syria, predominantly located around Damascus. As the crisis deepens, this number is likely to increase. UNRWA will seek to prioritise support to femaleheaded households, especially to provide accommodation and cash assistance support to those who are internally displaced and to ensure that the Agency s support reaches them. In addition, as with most conflict settings, domestic violence and GBV are increasing. Early and forced marriages of girls, which are common in rural areas, are also likely to increase as negative coping mechanisms, particularly amongst those displaced from their homes as their stay as refugees lengthens. In some cases, girls and women may resort to exploitative transactional sex to survive. UNRWA will work in partnership with UNFPA and community groups in consultation with the Protection working group to monitor and address issues of GBV in a coordinated manner (see also Goal 3). Youth: In March 2012 UNRWA adopted an agenda of ten commitments to youth. A long-standing project in Syria, supported by the European Union, provided the groundwork for this initiative. UNRWA will continue implementing this initiative through its on-going Engaging Youth project, targeted at supporting youth throughout the crisis through providing employability and vocational skills. Through the Damascus Training Centre s on-going operations, where conflict permits, support for targeted technical

18 and vocational training will continue to be provided to support Palestine refugee youth to obtain internationally recognised qualifications and also trade related skills to assist Syria to recover from the crisis. Protection: While the rights of Palestine refugees in Syria have not changed, they are finding themselves under increasing pressure as a result of the crisis in meeting their basic needs and rights, and in maintaining their neutrality. The majority of the Palestine refugee population in Syria is now considered to be vulnerable by UNRWA. There are also specific groups whose needs require dedicated support and monitoring, such as IDPs, Palestine Iraqi refugees, disabled people, youth (preventing them from being brought into the conflict), children female headed households and the elderly. As an example, UNRWA s November 2012 needs assessment found there are currently 43,618 elderly people living alone without support. In response, UNRWA will further develop a strategy to support the protection of Palestine refugees in Syria. In implementing this strategy, UNRWA will continue to emphasise and advocate for the needs, rights, neutrality and security of Palestine refugees. This will be done through public and private awareness and advocacy, including the Syria Humanitarian response plan, statements, and direct approaches to authorities. Safety and Security: The objective of strengthening resilience for Palestine refugees will be achieved through an increased emphasis on safety and security for UNRWA operations and beneficiaries. UNRWA in Syria will prioritise the physical upgrading of its facilities, as well as seeking to secure safe movement and travel for staff. The SFO s plan includes provisions for supporting UNRWA staff still living in conflict affected areas and reporting to work. UNRWA will support initiatives on conflict and disaster risk reduction, catering for conflict mitigation and social cohesion through empowering local/community structures. Additionally, each initiative will be disaster, risk and conflict sensitive. Further support will be provided for capacity development of targeted local structures, partners and UNRWA staff amongst others to deliver efficient, high quality and effective services. 12

19 4 Human Development Goals GOAL ONE: A long and healthy life Results from the Biennium Consistent with previous years, 2011 marked a positive increase in the quality of the SFO s health services. Indicators were improving and in line with the health of the Syrian population. For example, consultations per doctor were down to 85 in two out of the four quarters of 2011, with an average antibiotic prescription rate of 31 per cent. The steady decrease in consultations per doctor enabled doctors to spend more time with each patient (4 minutes per consultation) compared to a baseline of 3 minutes. Around 36 per cent of all outpatients and clients attended regular clinics by appointment, starting to normalise the workload for health care staff and provide more efficient services. In addition, UNRWA successfully managed non-communicable disease (NCD) treatment, ensuring that the detection rate of late complications among NCD patients reached a target of 14 per cent. One of the field s highest priorities was community health awareness campaigns, focusing particularly on pre- and ante-natal care. These campaigns contributed to a low maternal and infant mortality rate (10 per 100,000 and 20 per 1,000 respectively), achieving targets. Vaccination rates for infants below 12 months reached 99.9 per cent, and for children of 18 months the health team achieved 100 per cent coverage, preventing the spread of communicable diseases amongst children. However, these gains could not be sustained throughout The crisis in Syria has caused serious disruption to the health system and to the operation of UNRWA s health services. It has severely affected the health care infrastructure, the health workforce and the availability of essential medicines and supplies. Doctors have been targeted for assassination and there was reduced access to medicines and specialist medical services. According to government statistics, almost 35 per cent of hospitals and approximately 10 per cent of health centres are reported as damaged. 7 The emergency transport system is also affected due to shortage of available ambulances over 40 per cent of the total available ambulances are targeted or damaged. 8 Lack of access to health care facilities due to the current events and severe shortages of medicines are among the main obstacles to the provision of health care, as well as increased incidences of communicable diseases. Outbreaks of certain communicable diseases (Hepatitis and Typhoid) associated with poor housing, sanitation and hygiene, overcrowding and unsafe water have been reported. The worsening insecurity is also preventing many health care workers from reporting for duty, contributing to severe staffing shortages in hospitals and other health facilities. Many doctors have left the country, as an example, over 50 per cent of the medical doctors have left Homs. 9 UNRWA s own primary health services have been forced to close temporarily in areas where conflict has prevented safe access for staff and patients. The confluence of damaged health infrastructure, disrupted supply chains, over-stretched human resources, shrinking humanitarian space and the depleted capacities of partners and contractors is contributing to poorer access to health, and the diminished scale and scope of UNRWA s health interventions. The growing humanitarian needs of the Palestine refugee community has meant that health services have shifted to cater to the emerging humanitarian priorities of an increasing number of vulnerable and displaced Palestine refugees. Work to implement planned Agency Health Reforms namely the Family Health Team (FHT) approach and e-health has not been able to be implemented to the extent that was planned. In the first quarter of SHARP, ibid 9 ibid 13

20 the FHT approach commenced in one health centre in Syria, but plans to expand further were not able to be implemented. Sustained service provision for basic health care, uninterrupted care for treatment and management of non-communicable diseases (NCDs) namely Diabetes Mellitus (DM) and Hypertension (HT) specialist care for pregnancy related needs, mental health, oral health, and referral specialist care for complicated NCDs were the health priorities throughout The SFO maintained open health centres throughout the first half of 2012 in Damascus, and as health centres have closed or where additional demand exists, UNRWA has created health points in areas of Palestine refugee concentration to deliver services to the population and to internally displaced refugees. Staff working in and managing these points have been provided with training on emergency response and security. UNRWA worked to ensure that there are on-going supplies of insulin and other essential medicines for refugees with NCDs, which pose life threatening risks, ensuring that patients with these diseases have enough supplies to cope when movement and access to health centres is not possible or severely limited. Operational modalities for providing secondary and tertiary care have shifted to embrace evolving ground realities. With depletion of capacity of public sector hospitals, UNRWA has relied on referrals to private hospitals for the increasing number of Palestine refugees in need of immediate, complex, life-saving trauma care (and subsequent disabilities related service provision physiotherapy, prosthetics). In 2012 UNRWA referred 912 cases for care, reimbursing costs, compared with 100 in Expected focus for The impact of the crisis has placed a serious strain on UNRWA s operations due to the increase in health needs coupled with the absence of alternative health care services and providers for Palestine 14 refugees to rely upon. To overcome these challenges and maintain health services to Palestine refugees, UNRWA will be continually adapting its approach to health care delivery. The focus for will be on the provision of core services and enhanced rapid response and mobile services. Health care services will target living-saving care, immunisation and preand post-natal care, as well as providing primary and secondary care where possible. Hygiene and sanitation kits will be delivered along with the medical care. To adjust and address the changing disease and injury burden, UNRWA will strengthen trauma care and referral arrangements with providers and partners for disability/rehabilitative care with partners (for example, IFRC). It will link those in need with other existing social services. In addition, the Agency will work to ensure that Palestine refugees in Syria are provided with adequate drinking water, sanitation and solid waste collection facilities. Where possible, early recovery work will repair destroyed and damaged health infrastructure and strengthen the health workforce. Where the situation permits and capacities are available, the health team will continue to roll out the UNRWA FHT approach and e-health reforms. Implementation summary for In order to meet the needs of an increasingly mobile population UNRWA will enhance its delivery methods with the provision of stand-alone clinics and mobile delivery of health services. This will include creating health points in places where refugees are congregating, such as IDP collective centres, temporary shelters and host communities. Health points will be equipped with trained medical personnel and supplies. UNRWA will work with partners, such as the International Medical Corps (IMC), to deliver emergency health services in established and new health points. In addition, UNRWA will continue to focus on utilising referral networks where they continue to exist in the provision of

21 secondary and tertiary care for complicated NCD and trauma cases. Due to the closure and reduced capacities of pharmaceutical companies within Syria, supply chain challenges will be mitigated through the partial procurement of medical supplies through international channels. Compared to procurement of supplies previously in Syria, this is likely to increase the costs of the supplies and delivery. As previously noted, the SFO will engage in the United Nations coordinated response to the health sector s needs in Syria, including through participation in the Health Sector Working Group/Cluster. UNRWA will also work with other international organisations and community organisations to support the health of Palestine refugees in Syria. 15

22 GOAL TWO: Knowledge and skills Results from the Biennium Palestine refugees for some time were less affected by the crisis in Syria than their neighbours, with camps largely isolated from the crisis. Notable early exceptions included Latakia and Homs the first where the population was temporarily evacuated and the second due to close proximity to conflict. As a result, in 2011 UNRWA s high standards of education were largely maintained and Palestine refugee children continued to outperform their Syrian counterparts. Eighty-four per cent of boys and 91 per cent of girls passed the Year 9 exams while by comparison, pass rates amongst Syrian students for the same exams were around 70 per cent. Eighty per cent of teaching staff met professional requirements, and training was provided to 50 per cent of teachers, focusing on newly and recently appointed teachers. However, there was a noted reduction in school attendance by the end of 2011 with decreased attendance of students at schools in areas such as Dera a, Homs, Hama and Latakia hardest hit. In Dera a, for example, schools were closed for one month due to military operations. Even when schools remained open, access for both students and teachers compromised regular functioning. It has been estimated that nearly 12,000 of the approximately 66,000 students educated by UNRWA each year in Syria had their education disrupted in some way by late Increased proximity to conflict meant that results from 2011 have not been able to be maintained in In particular, since December 2012, the shelling in Yarmouk has resulted in the closure of 29 schools accommodating 27,000 students. Overall, out of 118 schools only eight schools have continued to operate without temporary closures or interruptions. This situation is now exacerbated, as prolonged periods of displacement from homes and the extensive movement of IDPs will reduce the access of students to educational opportunities and hence to productive futures. The compounded 16 effect of prolonged unrest is likely to be considerable, especially when considering the increasing psycho-social effects of conflict on children. The education programme has undertaken several approaches to address the impact of the crisis: 1. Keeping schools open in secure areas. 2. Providing supplementary classes and additional tuition for students whose education had been disrupted by conflict. 3. Meeting the needs of displaced students to ensure the continuation of education through grades Enhancing the capacities of staff to provide education in emergencies through engagement in the International Network for Education in Emergencies. 5. Developing capacity and preparedness to provide self-learning materials and distance based education. In early 2013, 70 school premises for Palestine refugees remained functioning; 48 UNRWA schools and 22 Governmental schools. The governmental schools were provided by the Ministry of Education for displaced children. At the time of writing, 26,000 children continue to be enrolled in UNRWA s education programme (out of 66,000, pre-crisis). Child-friendly spaces and learning points were established in community safe spaces, IDP congregation points and IDP centres. These were equipped with teachers, educational support staff and facilities to access selflearning and wrap-around materials for all grade levels (e.g. using the internet). To support self-learning UNRWA is also in the process of developing television/dvdbased learning in collaboration with UNICEF. UNRWA is establishing educational clubs for recreation and support learning activities. The Agency is also implementing special classes for the preparation of the state examination for grade nine, in order

23 to allow children to graduate from secondary education. Expected results for In UNRWA will continue to deliver education to Palestine refugee children, despite the fact that the environment is likely to be marred by conflict and limited access to this basic human right. All efforts will be made to continue education where possible and improve school capacity, integrating affected children into open schools and providing alternative learning opportunities such as remedial and vocational education where needed. To meet the educational needs of children who cannot access UNRWA schools, Palestine refugee children will be supported with home learning and distance learning materials. In addition partnerships will be formed to provide affected children with psychosocial support and urgent school supplies. A key focus will be on returning the engagement of children in the education programme to pre-crisis levels through the formal education sector and alternative education models. This will necessitate the identification and mobilisation of infrastructure for safe learning environments and public outreach to encourage students to participate in their education. In order to maintain UNRWA s current teacher levels and standards, teachers will be trained in the provision of psycho-social support, and have access to psycho-social support facilities. Currently the majority of UNRWA s education buildings require some level of reconstruction and of repair. While the focus of UNRWA s support in the biennium will be on investments in improved access to education and teacher capacity-building, where there is opportunity the rehabilitation of buildings will be considered, if donor funding is available and the security situation permits. Implementation summary for Through its Emergency Education initiative the Agency will continue to deliver education to the highest standards possible. Staff and learning materials will continue to be a funding priority and safe locations will be sought to educate children. Mobile education tactics and rapid response methods will be used support the learning opportunities of children. Training will be provided using in-country resources and employing alternative training methodologies. This is due to the security risks and costs associated with undertaking comprehensive external training. It is therefore unlikely that UNRWA will be able to comprehensively increase the educational qualifications of unqualified teachers throughout As previously noted, UNRWA will engage in the United Nations coordinated response to the education sector s needs in Syria, including through participation in the Education Sector Working Group/Cluster. UNRWA will also work with other international organisations and community organisations to support the education of Palestine refugees in Syria. 17

24 Number of Loans Disbursed GOAL THREE: A decent standard of living Results from the Biennium Syria s employment sector has been badly affected by the crisis, and this in turn has negatively impacted Palestine refugees who often work as day-labourers or in other unskilled workforce sectors. Nonetheless, in 2011 microfinance was able to finance an average of over 4,400 loans per quarter, though as the crisis worsened so too did prospects for start-up businesses. UNRWA s Engaging Youth project demonstrated largely positive results; using established youth centres to offer career advice and vocational training courses as well as targeted training on how to create small businesses. Over 1,400 individuals participated in vocational training courses, 800 of whom found regular employment within three months of completion. Twelve UNRWA job centres provided valuable services to over 400 job seekers and in the fourth quarter of 2011, 40 per cent of refugees registered with the employment office were successfully placed in employment. Vocational training short courses were drastically increased to cater for some of the changes in market demand, with over 73 per cent of graduates finding employment within 6 months. In addition, modest cash and food support was provided to Palestine refugees identified as special hardship cases. Since it was established in 2003, the microfinance programme in Syria had financed 68,855 loans valued at USD million by the end of ,000 18,000 16,000 14,000 12,000 10,000 8,000 6,000 4,000 2,000 0 Syria annual lending Year No. of Loans Amount of Loans The programme advanced exponentially in Syria since it was established, but during the first year of the current unrest, in 2012, 14,000,000 12,000,000 10,000,000 8,000,000 6,000,000 4,000,000 2,000,000 0 its outreach fell precipitously by 60 per cent, while the value of lending plummeted by 70 per cent. This has resulted in the programme suffering significant losses and being no longer able to sustain full operational self-sufficiency. As a result the programme laid off 20 per cent of its staff to reduce its costs. Moreover, its operating costs in 2013 will be financed from a grant. In order to cope with this situation and ensure its survival, the programme has maintained one branch office in Damascus, closed four branches in Douma, Yarmouk, Saida Zeynab and Aleppo and opened three small units in Latakia, Tartous and Sweida, where the markets are still operating and where there is less violence. If this approach is successful, this will be followed by opening another three small units in Qamishli and Damascus to maintain credit outreach. However, in view of the prevailing situation in Syria, the programme is currently working under contingency in an emergency situation and does not consider it practical to project outreach targets and outcomes for Given the emerging crisis and the shrinking economic sector, by the end of 2011 support to Palestine refugees in securing a decent standard of living began to shift to the provision of emergency cash assistance. As of September 2012, over 50,000 applications had been received from families for cash assistance an estimated 225,000 individuals. This number is expected to increase throughout In its emergency response from March 2011 to September 2012 over 20,000 families received cash to assist them to recover from conflict and poverty. In addition, an average of 5 per cent of families identified for special hardship assistance were provided with selective cash assistance each quarter. In some instances cash assistance was supplemented with noncash assistance services, primarily through the support of social workers. At the time of writing food remained available in most residential areas though inflation and reduced household incomes mean more 18

25 and more refugees cannot afford to buy sufficient food. IDP temporary collective centres were also created in the Yarmouk area during July 2012 for IDPs fleeing conflict in Rif Damascus, housing up to 11,400 refugees. More recently, displacement from Yarmouk and Rif Damascus has required the creation of new IDP collective centres in the Damascus area, which now house over 8,250 Palestine refugees. Schools, community centres and other UNRWA facilities have been taken over to house IDPs. These were not designed for mass habitation, and support has focused on the provision of infrastructural modifications to respond to sanitation, electricity and family privacy needs. Expected results for It is expected that throughout ,000 or more Palestine refugees will require intensive and on-going humanitarian assistance. As a result the SFO s social services programme will expand in its scope of delivery and the modalities of delivery accounting for a wider geographical spread, larger quantities of goods and more frequent distributions. Support will focus on the provision of cash and in-kind assistance (food and non-food items), targeting the most vulnerable Palestine refugee families and communities. It is anticipated that there will be extensive need for the provision and distribution of food and NFIs to up to 420,000 Palestine refugees, as the economy contracts and as opportunities for employment reduce markedly. This support will help IDPs and those being hosted by the community to cope. During winter months efforts will be made to provide cash specifically to fund critical winter items such as heating. Given the breadth of the demand and the availability of funds, and where the security situation permits, the Proxy Means Testing Formula (PMTF) tool will be used to identify beneficiaries and the displaced, elderly, disabled and female headed households who will be prioritised for support. In other instances there will be blanket coverage of people who identify as conflict-affected. Cash assistance will be provided to improve the ability of refugees to meet their needs, strengthen their purchasing power and reduce the poverty gap through bank transfers where possible. Staff, including social workers, will support the delivery of goods and act as a continued conduit for consultations, information and feedback. Social workers will do real time assessments of needs and provide advice on availability of additional resources where they exist. This will include linking refugees to existing humanitarian initiatives, including on domestic violence and other protection issues. Collective centres are likely to be expanded in the coming biennium and UNRWA engineering staff will focus on intensive works to improve water, sanitation and hygiene infrastructure in these temporary shelters. This may be done in partnership with international organisations and community groups. The Agency will also continue to install kitchen sets in these shelters and relevant UNRWA and partner facilities. Where possible, efforts will be made to repair UNRWA facilities and camp structures. Vocational training will continue operations wherever possible, while expanding alternative approaches to learning and capacity development. These approaches will assist in early recovery endeavours and support the employability of youth. New centres in Aleppo, Dera a and Homs will be opened (situation permitting) and recovery-based and market-relevant short courses will be prioritised to meet likely needs in the building industry in particular (for example construction, welding and plumbing). UNRWA s microfinance department will aim to improve the quality of life of small business owners, micro-entrepreneurs and poor households through the provision of financial services that sustain jobs, decrease unemployment, reduce poverty, economically empower women and youth and provide income-generating and assetbuilding opportunities to Palestine refugees 19

26 and other proximate poor and marginal groups. The department will also advocate for the introduction and provision of safesaving services to poor clients as the best means to prepare for the future and provide a financial safety-net to help them cope with personal and family emergencies and crises. The SFO will strive to provide scalable interventions with measurable macroeconomic impact by concentrating its financial service in poorer urban areas where there is a high density of Palestine refugees. toward Palestine refugees within host communities. As previously noted, UNRWA will play a key role in the United Nations coordinated response to the shelter, NFI, food, protection and livelihood needs of Palestine refugees in Syria, including through participation in the relevant sector working groups and/or clusters. UNRWA will also work with other international organisations and community organisations to support the standard of living of Palestine refugees in Syria. Implementation summary for Periodic needs assessments, utilising the PMTF tool, will be undertaken to assess the vulnerability of Palestine refugees living in different areas of Syria, and the accessibility of target areas. Project support teams, in coordination with procurement, finance and logistics, will develop detailed plans for the distribution of cash, 10 food and non-food items as needed. Distribution will be carried out using local bank networks and distribution staff at safe distribution points, coordinated with UN partners and local stakeholders as part of the United Nations response to the crisis in Syria. The participation of UNRWA in inter-agency convoys will be expanded, as a means to reach insecure areas. Ongoing and close collaboration with community representatives will remain vital in securing the delivery of support, and partnerships with other service providers will be central in ensuring that services are delivered to Palestinian and non- Palestinian communities equally, thereby reducing the possibility of resentment 10 To ensure neutrality, cash assistance to social safety net beneficiaries is only provided to registered Palestine refugees. Applications for cash assistance are individually screened by the Agency for eligibility against Relief Instructions. Screening processes where possible include a home visit by a social worker plus spot checks and follow-up to ensure that assistance has been used for the purpose provided. In areas of direct conflict and displacement, home visits are not feasible. 20

27 GOAL FOUR: Human rights enjoyed to the fullest Results from the Biennium Issues of human rights and protection have become more prominent with the increased conflict in Syria, highlighting the importance of integrating human rights and protection referral systems throughout all of UNRWA s work in Syria. Throughout the SFO has focused on seeking to protect the human rights of Palestine refugees inside Syria, as well as advocating for their neutrality in the crisis. Reinforcing the neutrality of the Palestinian population in Syria has been central to UNRWA s protection work throughout the crisis. In addition, protection efforts focused on providing responses and support to Palestine refugees inadvertently caught up in the violence, and responding to their humanitarian needs. In particular, human rights and protection support focused on supporting particularly vulnerable individuals and families. Given the circumstances, a great deal of the response and support provided was tied to cash and food assistance for the most vulnerable individuals and groups. As examples, Palestine Iraqi refugee families living in dire economic conditions were provided with emergency cash assistance for food and rent on a quarterly basis, as well as female-headed households and unaccompanied children. Community based organisations (CBOs) provided inkind services to these vulnerable individuals, delivering specific health care needs, targeted community empowerment initiatives and life skills trainings combined with microfinance services. Throughout , within the constraints imposed by the crisis in terms of access, safety and security for staff and beneficiaries, UNRWA has continued its efforts to monitor, report and intervene, either directly or indirectly, with the relevant authorities in order to protect the rights of Palestine refugees. UNRWA spoke out publically on several occasions when Palestine refugees were particularly affected by the conflict. 21 UNRWA has also provided physical protection to over 8,250 persons who have taken shelter in UNRWA facilities. This environment has also presented its own specific protection challenges. The SFO has strived to put systems in place to address issues such as GBV, protection of the elderly, disabled and child protection issues. The reinforcement of human rights concepts and values were made through the educational curriculum and a number of school initiatives, including student parliaments in all schools. Through collaboration with UNICEF, UNRWA has been supporting child rights education in schools. Activities include workshops, teacher training courses and summer camps. Parents and local communities are encouraged to engage in the process. A human rights policy was drafted for all schools, and this was disseminated as part of the Education Reform Forum. All teachers received training on a violence-free schools programme, and all schools implemented the violencefree/child-friendly schools programme. As a result there was an immediate reduction in cases of violence reported in UNRWA schools, down to four cases in 2012 compared with twenty in However, the on-going impact of conflict and the exposure of children to viewing and hearing violence in their neighbourhoods and experiencing grief and loss will have an impact on their psychosocial health. CBOs continued to remain under the UNRWA umbrella, as the environment for accreditation of local NGOs in Syria is not conducive to their graduation. The financial viability of these CBOs varied throughout 2012, due to the changing economic circumstances in Syria. The SFO began to work in partnership with CBOs to provide support for humanitarian delivery. The registration of refugees continued throughout 2012, but the crisis has begun to generate problems in this process. Greater numbers of refugees are approaching UNRWA for validation and registration, straining current capacities. In

28 addition, many refugees no longer have the needed documents to verify their refugee status, as these may have been lost or destroyed as a result of displacement. Expected results for has witnessed an increase in violence and criminal activity throughout Syria and it is assumed that this will continue in Continued violence and displacement may result in the increasing collapse of the family unit, a breakdown of social structures and a continued diminishing of employment opportunities. This presents a serious risk of increased crime and social vulnerability, especially among young people. Under this scenario UNRWA s protection responsibilities will become very important and the SFO will need to enhance its protection capacities to respond to this. UNRWA will continue not only to respond to those that approach the Agency, but will also to employ protection strategies to identify particularly vulnerable individuals and families who will in turn be provided with targeted assistance. Related challenges may also arise if there is any change in perception with respect to the neutrality of Palestine refugees in the crisis. UNRWA will continue to advocate for their protection and this will include high level advocacy. Registration of refugees will continue, though challenges are envisaged in verifying claims. Partnerships with CBOs will also continue, with CBOs remaining an important partner for the delivery of social services and humanitarian assistance. UNRWA will work to ensure the financial transparency of CBOs and monitor funds provided to them. Implementation summary for A Protection Framework for is being developed and this will guide the implementation of UNRWA s protection work in Syria. UNRWA will work to ensure that minimum protection standards for temporary collective centres and other facilities will be implemented according to UNRWA Protection Standards, as well as SPHERE standards. These will be closely monitored. Registration points will be established in areas of Palestine refugee concentration where Palestine refugees can register for UNRWA services. Verification will be done by area staff to reduce wait times for services. The human rights of Palestine refugees living in this crisis will continue to be strongly advocated for by UNRWA. This will include representation to support their peaceful existence in Syria while a durable solution to their plight continues to be sought. GBV programming will target prevention, referral where possible and responses, in partnership with United Nations agencies and other actors. 22

29 GOAL FIVE: Effective and efficient governance and support Results from the Biennium Throughout the management and support services in the SFO have evolved and shifted to better respond to the evolving crisis. Priorities have included ensuring emergency preparedness, the development of Emergency Response Teams (ERTs) and the identification and implementation of emergency procurement and human resource strategies. Security preparedness and upgrades formed the backbone of this work, supported by the continuous efforts for the development of back-up communication systems. As the operations team in Syria begin to decentralise as a modality for enhancing continued delivery, A Central Operations Room was established in Damascus and similar communications and oerations hubs have been envisaged in each UNRWA area of operation,.. The human resources team has prioritised shortening recruitment processes to meet the staffing needs of emergency programmes while also responding to the emerging needs of current staff. Currently, UNRWA staff deal with a myriad of challenges related to the crisis including the devaluation of their salaries, continual displacement and difficulties in accessing UNRWA workplaces. In response, UNRWA is providing salaries in United States Dollars, to provide emergency support and security assistance where needed, looking to the identification of opportunities to cross-utilise staff unable to travel to their duty stations and the processing of leave without pay applications as necessary. Rosters for key vocational groups have been established to expedite future recruitments and preparedness has been undertaken, such as the transfer of data and human resources files to more secure locations. The procurement team has focused on updating and utilising emergency procurement procedures to expedite the acquisition of goods and supplies. Given supply chain challenges there has been a shift from national to international procurement, driving up supply costs and 23 delivery times. Supplier lists are continually updated based on availability. The SFO has been working to stockpile non-perishable emergency goods and has partnered with UNHCR to extend the capacity of its warehousing. Emergency packing teams were established to parcel food and nonfood item, thereby reducing the costs of packaging and delivery. The movement of people and goods has been a challenge for the SFO and the transport team has focused on contracting local transport providers to move area staff and goods as safely as possible. Goods are also being transported through UN convoys, in partnership with WFP and other UN entities. The finance department has hired additional staff and strengthened its focus on the oversight of programme finances. This has included the implementation of International Public Sector Accounting Standards (IPSAS). In tandem, improving communications has been key to operability. Back up communication mechanisms and packages have been distributed to area offices including internet cards, laptops, VHF radios, and mobiles. Staff are being equipped to work from home where the vocation allows for it. Without adequate security the UNRWA operation in Syria will be unable to run. Therefore security upgrades and the oversight of security management systems has been a strong focus of the UNRWA operations team, coordinated with UNDSS. This has included efforts to ensure preparedness, the upgrading of UNRWA facilities and the increased security oversight of area staff. Expected results for Given the expected continued instability within Syria, the ensuring of effective, timely and nimble management and support services will be critical for the Agency s delivery of its programmes. Throughout the SFO will focus its management and support services on delivering a new Emergency Management Structure, clustered around three primary results:

30 1. Enabling programme teams to deliver services through the establishment of Emergency Response Teams located throughout Syria; 2. Ensuring high quality and consistent security support, with a focus on upgrading UNRWA installations, implemented in coordination with UNDSS; and 3. Facilitating effective communication within UNRWA and between partners for enhanced coordination and collaboration. In addition, it is expected that the additional priorities and activities detailed for will continue for Support to human resources will continue to focus on the recruitment of core emergency staff and the maintenance of current staff. Procurement will continue to seek alternatives to supply chain blockages, increasingly relying on international procurement for the delivery of goods. To the extent possible local procurement will be decentralised at the area level. Interagency convoys will be relied on for the delivery of goods to distribution points, and as challenges in using UN transport in hostile areas increase, the reliance on local transport vendors to deliver safe and reliable options will remain. Across UNRWA the new Enterprise Resource Planning system will be implemented, and this is expected to be completed in mid Implementation summary for The implementation of the SFO s Emergency Management Structure (EMS) will ensure effective and timely delivery of life-saving and early recovery assistance during the current protracted crisis. Four principles have guided the design of the EMS's organisation and management arrangements: The establishment of clear, simple lines of authority and reporting, ensuring operational effectiveness and accountability for decisions taken; Ensuring that authority to manage the response is delegated to those staff closest to the affected areas; Ensuring delivery of assistance when movement is restricted and areas/ camps/ gatherings are isolated; and Ensuring adequate linkages between the crisis and post-crisis/ early-recovery phase. Emergency Response Teams (ERTs) will be operating at three levels to manage SFO s emergency response work: at SFO level, at area offices level, and at the camps/gatherings level. The main responsibility of ERTs will be to plan the delivery of the assistance, provide strategic coordination, allocate resources, provide backstopping, and facilitate control, monitoring and evaluation. The responsibility for managing the crisis response in the areas is delegated to the Area ERTs, who are then through the Camp and Gathering ERTs implementing UNRWA's humanitarian assistance. With a view to institutionalising and optimising the Security Risk Management System, SFO will work towards developing five core business functions: i) Risk Management Approach; ii) Policy and Standards; iii) Crisis and Emergency Management; iv) Incident Management and Reporting; and v) Guard Force Management. Progress on this outcome is indicated by first implementing a Framework of Accountability and second by pursuing operational risk management. The security team will collaborate with, and support, other field offices in order to mainstream risk management in field operations and programmes. SFO will prioritise risk management support to field emergency preparedness and response efforts. SFO will also continue to manage commitments to the UNSMS (including MOSS/MORSS) for international staff. 24

31 5 Implementation, Monitoring and Reporting Results Overall responsibility for implementation of the biennium plan lies with the leadership and direction of the Director of UNRWA Affairs in Syria. In accordance with Organisational Development (OD) principles, while final responsibility lies with the director of the field office, roles and responsibilities for the implementation of the FIP and delivery of services is delegated to relevant programme chiefs and managers. Monitoring and evaluation is an integral part of programme management. The UNRWA Results Based Monitoring (RBM) system is the main tool used for systematic programme monitoring of biennium plans. The Integrated Monitoring and Budget Matrix (Annex 1) includes the indicators used to monitor the implementation and progress of UNRWA programmes against planned targets. The Agency uses common and field specific indicators to assess progress. In the case of Syria, indicators that are common across the field offices are for obvious reasons not entirely applicable in the current context (e.g. implementing reforms such as e- Health). Field offices conduct quarterly management reviews using quantitative and qualitative information at an operational level. In addition, on a semiannual basis the Agency holds a mid-year results, and expenditure review to assess Agency-wide progress. These reviews aim to provide an implementation status update for programmes and support services against plan. UNRWA also provides reporting to the Advisory Commission and its Sub- Committee in the form of the annual Harmonised Results Review. This reporting uses a prescribed sub-set of indicators from the biennium plans, complemented by a narrative analysis used to report on progress and achievements of Strategic Objectives. The Harmonised Results Report is produced in accordance with the Aid Effectiveness Agenda and the Principles of Good Donorship. Implementation and monitoring in the Syrian context is challenged by the constraints of the crisis. Limited access, reduced number of staff and security concerns are making implementation and monitoring more difficult. However, UNRWA has extensive experience implementing and monitoring results in situations of crisis and conflict, over time building systems to adapt to instability. This is evident through UNRWA s current direct and on-going work in Syria. As an example, to support implementation UNRWA has been amending its supply chain procedures, allowing for remote programming where necessary and greater autonomy to field offices and support teams inside Syria. To continue delivering education UNRWA has developed and is rolling out remote education packages for children. Many of these strategies are detailed throughout this Field Implementation Plan and will be amended as the security context and access points change. Security and communication equipment will be enhanced to maintain regular communication between field operations and the Syria Field Office. Monitoring will be supervised by the Director of UNRWA Affairs Syria and will be done in coordination with UNRWA partners. 25

32 Annex 1: Integrated Monitoring and Budget Matrix NC: Not Collected TBD: To Be Determined - : Not Applicable FS: Field Specific Intervention Logic GOAL 1: A LONG AND HEALTHY LIFE Monitoring of Results Budget USD ( ) Indicator Baseline Target General Funds Project Funds Emergency Funds To be completed by end of June Unfunded Requirement SO1: Ensure universal access to quality comprehensive primary health care Outcome 1.1 Quality of health services maintained and improved 1.1.a) Average daily medical consultation per doctor 1.1.b) Level of satisfaction by direct users with newly constructed and/or upgraded HCs 1.1.c) Average consultation time per doctor 1.1.d) No. of Palestine Refugees from Syria (PRS) accessing UNRWA health facilities (MALE) 1.1.e) No. of Palestine Refugees from Syria (PRS) accessing UNRWA health facilities (FEMALE) 1.1.f) Number of consultations by health centre/health point [FS] 1.1.g) No. of PR consultations per health centre and per health point [FS] 1.1.h) No. of functioning health centres / health points 1.1.i) Prevalence of Severe Acute Malnutrition (SAM) Output 1.1.1: Family health team and general outpatient a) Antimicrobial prescription rate b) Percentage of preventive dental consultation of total dental consultation c) Percentage of 4th grade school children identified with vision defect 26

33 services improved d) Number of health centres implementing FHT approach e) No. of consultations for on psychosocial support (Male PRS) f) No. of consultations on psychosocial support (Female- PRS) g) No. of disabled patients in care [FS] h) No. of health centres / health points with PEP kits in stock [FS] Output Access to hospital care ensured Output Health management support strengthened Output Drug management system in place Output Emergency preparedness planning i) No. of psycho-social consultations in outpatient settings [FS] j) No. of consultations on psychosocial support (female) [FS] k) No. of consultations on psychosocial support (male) [FS] a) Total number of hospitalization (secondary and tertiary) b) Total No. of hospitalization of PRS (secondary and tertiary) c) Number of trauma related referrals [FS] a) Percentage of health centres implementing at least one e-health module a) Percentage of HCs with no stock out of 12 tracer items a) Percentage of HCs with emergency preparedness plans in place b) No. of HCs re-equipped to continue functioning [FS] c) No. of HCs repaired to meet emergency standard [FS] d) No. of health staff trained for psychosocial support [FS]

34 Output Health centres infrastructure improved a) Percentage of upgraded HCs meeting UNRWA's infrastructure security, safety and accessibility standards against number of all upgraded HCs in the biennium SO 2:Protect and promote family health Outcome 2.1 Coverage and quality of maternal & child health services maintained & improved Output Comprehensive MCH services delivered Output School health services strengthened SO 3: Prevent and control diseases 2.1.a) Percentage of pregnant women attending at least 4 ANC visits 2.1.b) Percentage of 18 months old children that received 2 doses of Vitamin A 2.1.c) Proportion of home deliveries [FS] a) Number of women newly enrolled in Pre- Conception Care programme b) Percentage of women attending PNC within 6 weeks of delivery c) Number of continuing family planning acceptors d) Percentage of HCs with at least one clinical staff member trained on detection and referral of GBV cases a) Diphtheria and tetanus (dt) coverage among targeted students Outcome 3.1 Coverage and quality NCD care improved 3.1.a) Percentage of targeted population 40 years and above screened for diabetes mellitus 3.1.b) Percentage of patients with diabetes under control according to defined criteria 3.1.c) Percentage of patients with hypertension under control according to defined criteria Output Appropriate a) Total number of new NCD patients in programme (DM, HT, DM+HT) 28

35 management of NCDs ensured b) Total number of NCD patients in programme (DM, HT, DM+HT) c) Percentage of NCD patients coming to HC regularly with appointment Outcome 3.2 Communicable diseases contained and controlled Output Prevention and control of communicable diseases maintained Output Environmental health services and environmental infrastructure maintained/im proved GOAL 2: KNOWLEDGE AND SKILLS d) Percentage of late complication among NCD patients 3.2.a) Number of EPI vaccine preventable diseases outbreaks 3.2.b) Number of EPI communicable diseases outbreaks [FS] 3.2.c) No. of NCD patients who paid at least one visit per year [FS] a) Percentage of 18 months old children that have received all EPI vaccinations according to host country requirements b) Number of new TB cases detected a) Percentage of shelters connected to UNRWA/Municipal water network b) Percentage of shelters connected to public sewerage network c) Number of Palestine refugees with access to sanitation and hygiene kits [FS] SO4: Ensure universal access to and coverage of basic education Outcome 4.1. Basic education for all Palestine refugee children 4.1.a) Cumulative drop-out rates for preparatory education male 4.1.b) Cumulative drop-out rates for preparatory education female 4.1.c) Cumulative drop-out rates for elementary education male 29

36 4.1.d) Cumulative drop-out rates for elementary education female 4.1.e) Survival rate to the end of basic education male 4.1.f) Survival rate to the end of basic education female 4.1.g) Internal efficiency of the education programme 4.1.h) Level of satisfaction by direct users with newly constructed and/or upgraded schools 4.1.i) Number of students attending alternative learning facilities (ie. MOE, rented and community donated facilities) [FS] 4.1.j) Average attendance rate of enrolled students [FS] 4.1.k)Average number of children attending alternative education spaces in IDP collective shelters [FS] 4.1.l) Number of teachers working in IDP collective shelters [FS] 4.1.m) Number of students attending alternative learning facilities (ie. MOE, rented and community donated facilities) [FS} Output Education access, retention and completion in a conducive learning environment a) Pupil-to-teacher ratio for preparatory education b) Pupil-to-teacher ratio for elementary education c) Input unit costs in the education programme (disaggregated by rented schools, small isolated Agency schools, and other schools) d) Percentage of double-shift schools e) No. of PRS students graduating from basic education f) No. of PRS school age children registered 30

37 4.1.1.g) No. of PRS school age children attending UNRWA schools h) Number of students attending summer learning clubs [FS] i) Number of students (9 th grade) in special classes to complete basic education cycle [FS] j) Pass rates for basic education (male/female) [FS] k) pupil-to-teacher ratio for child-friendly spaces within IDP collective centres [FS] Output Physical infrastructure and/or equipment of schools provided, maintained or improved a)Percentage of existing school buildings upgraded to meet UNRWA's infrastructure security, safety and accessibility standards against number of all upgraded school buildings in the biennium b) Number of schools and alternative education spaces equipment to support learning [FS] c) Percentage of damaged school buildings that have been reconstructed, meeting minimum safety standards [FS] SO5:Enhance education quality and outcomes against set standards Outcome 5.1. Improved effectiveness of the UNRWA educational system 5.1.a) Teaching/Learning practices aligned with education reform 5.1.b) Percentage of head teachers that meet or exceed ratings in their annual performance reviews 5.1.c) Number of teachers that do not hold a degree male 5.1.d) Number of teachers that do not hold a degree female 5.1.e) Student mean score on MLA math 4 th grade

38 male 5.1.f) Student mean score on MLA math 4 th grade female 5.1.g) Student mean score on MLA math 8 th grade male 5.1.h) Student mean score on MLA math 8 th grade male 5.1.i) Student mean score on MLA Arabic 4 th grade male 5.1.j) Student mean score on MLA Arabic 4 th grade female 5.1.k) Student mean score on MLA Arabic 8 th grade male 5.1.l) Student mean score on MLA Arabic 8 th grade female Output Professional, qualified and motivated teaching force in place 5.1.m) Prevalence of Human Rights culture (as defined by UNRWA Policy) and practices at school level a) Teacher policy being implemented b) Percentage of areas where all grade 1-6 teachers have been trained using the UNRWA-wide SBDT programme c) Percentage of areas where all head teachers/school principals have been trained through the Leading for the Future training d) Number of education staff trained, in delivering emergency education teaching practices and alternative education [FS] e) Number of teachers (grade 1-6) using the 32

39 UNRWA-wide SBDT programme [FS] f) Number of head teachers/school principals have been trained through the Leading for the Future training [FS] g) Number of education staff have access to psychosocial support [FS] Output Curricula that are supporting holistic approach to learning and personal development a)Number of textbooks reviewed at Field level using the curriculum framework b)Percentage of areas where all teachers have been trained in the use of the HRCRT teacher toolkit c) No. of education staff trained in delivering emergency education teaching practices and provision of psychosocial support Output Evidencebased policy making and informed decisionmaking at all levels d) Number head teachers in leading for future programme [FS] e) Number of students who received self-learning materials [FS] f) Number of summer learning clubs established [FS] a) Percentage of schools implementing the schoolbased Agency-wide EMIS to report and plan SO 6: Improved access to education opportunities for learners with special education needs Outcome 6.1 Equal access to quality education for all Palestine 6.1.a) Inclusive approach embedded in educational practice 6.1.b) Percentage of students scoring below 30% on the MLA test math 4 th grade male 33

40 refugee children regardless of gender, abilities, disabilities impairments, health conditions and socioeconomic status ensured 6.1.c) Percentage of students scoring below 30% on the MLA test math 4 th grade female 6.1.d) Percentage of students scoring below 30% on the MLA test math 8 th grade male 6.1.e) Percentage of students scoring below 30% on the MLA test math 8 th grade female 6.1.f) Percentage of students scoring below 30% on the MLA test Arabic 4 th grade male 6.1.g) Percentage of students scoring below 30% on the MLA test Arabic 4 th grade female 6.1.h) Percentage of students scoring below 30% on the MLA test Arabic 8 th grade male 6.1.i) Number of school age children receiving appropriate psychosocial support [FS] Output Credible policy and tools supporting inclusive education a) Percentage of all children enrolled in UNRWA schools identified as having a disability GOAL 3: A DECENT STANDARD OF LIVING SO7: Reduce abject poverty Outcome 7.1 Ability of abject poor refugees to meet their basic food consumption needs improved Output Field able to identify and classify poverty 7.1.a) Percentage of abject poverty line covered, on average, through UNRWA's social transfer during the quarter 7.1.b) Percentage of households qualified for support have access to basic consumption needs a) Percentage of SSNP beneficiaries who are abject poor b) Percentage of abject poor refugees receiving 34

41 amongst refugees Output Abject poor refugees provided with food assistance SSNP social transfer a) Percentage of SSNP ration ceiling distributed b) No. of PRS households receiving food assistance c) No. of Palestinian refugee female-headed household receiving food assistance [FS] d) No. of Palestinian refugee household with elderly and disabled members receiving food assistance [FS] Outcome 7.2 Poor refugees' vulnerability to shocks reduced Output Access to integrated services provided to vulnerable refugees 7.2.a) Percentage of poor, vulnerable refugees participating in social protection programmes a) Percentage of vulnerable refugee families referred to and assisted by other service providers b) Percentage of poor, vulnerable refugees assisted by UNRWA c) Number of PRS household receiving cash assistance d) No. of PRS households receiving NFIs e) Number of Palestinian refugee female-headed household receiving cash assistance [FS] f) Number of Palestinian refugee household with elderly and disabled members receiving cash assistance [FS] g) Percentage of special hardship assistance programme families receiving emergency food/cash/nfis (one or more) [FS] h) Number of Palestinian refugee female-headed household provided with NFIs [FS] i) Number of Palestinian refugee household with 35

42 Output Communitybased development implemented in select communities elderly and disabled members provided with NFIs [FS] g) Number of Palestinian refugee household provided with food [FS] a) Number of community-based development initiatives undertaken SO9: Offer inclusive financial services and increased access to credit and savings facilities, especially for vulnerable groups such as women, youth and the poor Outcome 9.1 Increase in number of clients (including vulnerable groups) accessing credit and saving products 9.1.a) Total number of clients with loans 9.1.b) Total number of women with loans 9.1.c) Total number of youth with loans (18-30) 9.1.d) Total number of refugees with loans 9.1.e) Total number of micro-entrepreneurs with loans 9.1.f) Total number of informal enterprise with loans 9.1.g) Percentage of poor clients 9.1.h) Percentage of low-income clients Output Range of credit products financed through (MEC), (MEC+), (SSE), (SGL) (WHC), (HLP), (CLP) a) Total value of lending b) Number of MEC loans c) Value of MEC loans d) Number of MEC+ loans e) Value of MEC+ loans f) Number of WHC and SGL loans g) Value of WHC WHC and SGL loans 36

43 9.1.1.h) Number of housing loans i) Value of housing loans j) Number of consumer loans k) Value of consumer loans l) Number of Youth Start-up loans (YSL) m) Value of YSL loans SO10: Improve employability Outcome 10.1 Improved employment opportunities for Palestine refugees 10.1.a) Percentage of graduates employed or continuing their studies among active job seekers - male 10.1.b) Percentage of graduates employed or continuing their studies among active job seekers - female 10.1.c) Percentage of graduates working in a job in relation to their training or studying in a relevant field - male 10.1.d) Percentage of graduates working in a job in relation to their training or studying in a relevant field - female 10.1.e) Degree of employer satisfaction with UNRWA TVET 10.1.f) Number of focus group discussions with employers 10.1.g) Percentage of SSNP/SHAP students among students enrolled in VTCs 10.1.h) Number of Palestine refugees enrolled that are women headed households/orphans [FS] 10.1.h) Percentage of self-employed graduates [FS] 10.1.i) Number of small scale projects by groups of graduates [FS] Output Appropriate 10.1.a) Percentage of VTC courses that are using Competency Based Training methodology 37

44 and relevant vocational training in conducive learning environment 10.1.b) Technical training mean score Male (not common across all fields) 10.1.c) Technical training mean score Female (not common across all fields) SO11: Improve the urban environment through sustainable camp development and upgrading of substandard infrastructure and accommodation Outcome 11.1 Vulnerable Families living in improved shelters/ collective centres. (FS) 11.1.a) Number of identified refugee families living in rehabilitated shelters 11.1.b) Number of identified absolute and abject poor/ssn families living in rehabilitated shelters 11.1.c) Number of identified refugee families living in improved temporary collective centres [FS] - - Output Reduction in the number of substandard shelters Output Assess impact of damage to infrastructure of camps and UNRWA facilities Output Maintenance of damaged UNRWA facilities Outcome 11.2 Refugees living in a progressively improved built environment a) Number of substandard shelters rehabilitated UNRWA b) Number of substandard shelters rehabilitated non UNRWA [FS] a) Number of facilities damaged [FS] a) Number of facilities restored/renovated and operational UNRWA [FS] a) Number of facilities maintained non UNRWA [FS] 11.2.a) Number of socio-economic infrastructure projects implemented based on CIPs 38

45 Output Participatory Camp Improvement Plans that integrate physical and social needs of community prepared and updated with focus on the most vulnerable groups Output Action plans prepared and implemented based on participatory Camp Improvement Plans Output Improved physical-spatial conditions in the camps a) The top ten priorities of the community are reflected in the CIP a) Number of projects implemented in the Action Plan against the total number of projects in the Action Plan a) Open urban spaces implemented in camps GOAL 4: HUMAN RIGHTS ENJOYED TO THE FULLEST SO12: Ensure service delivery meets the protection needs of beneficiaries, including vulnerable groups Outcome 12.1 Protection needs are integrated through all aspects of programming and delivery of services 12.1.a) Degree of alignment with UNRWA protection standards across all aspects of programming 12.1.b) Emergency response contingency plans updated in coordination with UN agencies and NGOs 12.1.c) Field Protection framework developed 39

46 SO13: Safeguard and advance the rights of Palestine refugees by promoting respect for human rights, international humanitarian law and international refugee law Outcome 13.1 Awareness and respect for the rights, safety and dignity of Palestine refugees increased 13.1.a) Percentage of UNRWA interventions on protection issues that prompted positive responses by authorities or other target audience 13.1.b) No. of PRS provided with counselling assistance 13.1.c) No. of statements/speeches advocating for addressing protection needs [FS] 13.1.d) No. of incidents indicating discrimination/targeting of refugees. [FS] SO14: Strengthen refugee capacity to formulate and implement sustainable social services in their communities Outcome 14.1 Field s relationship with UNRWA CBOs regularized Output Strategy for regularizing relationship with UNRWA CBOs implemented 14.1.a) Percentage of CBO stipends applied to partnership activities a) Number of partnerships established with UNRWA CBOs SO15: Ensure Palestine refugee registration and eligibility for UNRWA services are carried out in accordance with relevant international standards Outcome 15.1 Palestine refugee status and entitlements to UNRWA services protected Output Reliable information on 15.1.a) Percentage of families issued with a family registration card a) Percentage of family records updated with address information 40

47 refugees collected and stored GOAL 5: MANAGEMENT AND SUPPORT SERVICES SO16: Provide leadership, strengthen governance and foster partnerships Outcome16.1 Effective leadership and direction provided for achieving all goals 16.1.a) Degree to which Human Development Goals are achieved during the biennium 16.1.b) Percentage of UNBOA and DIOS audit findings (accepted and) satisfied of total made 16.1.c) Monitoring of implementation plans through semiannual Results reviews 16.1.d) Six-monthly Agency Expenditure Reviews are conducted Output Risk management plans contain mitigating actions and coping mechanisms in place a) Periodic review of risk registers b) Degree of completion of the annual work plan for DIOS SO17: Develop and sustain UNRWA, enabling it to carry out its mandate Outcome 17.1 Ensure optimal support services provided to stakeholders Agency-wide Output Ensure appropriate goods, commodities 17.1.a) Degree to which ASD indicators are achieved during the biennium a) Average processing time for issuing a tender b) DIFOTIS c) Aged-Purchase orders 41

48 and services are available to UNRWA beneficiaries in a timely and cost efficient manner d) Inventory accuracy rate e) Percentage vehicle availability f) Repair time efficiency compared to manufacturer standard maintenance times g) Fuel consumption/mile/vehicle h) Percentage of vehicles which fulfils one or two retirement criteria Output To institutionalise and optimise the Security Risk Management System Output Provision of effective and efficient ICT management and support services to UNRWA in fulfilling its mandate towards the Palestine refugees Outcome To develop a skilled and diverse workforce, equipped and a) Security and risk management plans update and implemented b) Requirements in the Framework of Accountability are implemented a) Percentage of user satisfaction collected through periodical surveys b) Downtime on ICT systems [FS] 17.2.a) Degree to which HR indicators are achieved during the biennium 42

49 motivated to provide high quality human development programmes to Palestine refugees Output Enhanced HR services and HR Management processes with regards to staffing and recruitment, performance management and reward, staff development and HR planning a) Cost of area staff vs budget b) Number of FTEs: actual vs budgeted posts c)Unplanned vacancies: # of days between advertisements and selection decision (area staff) (HQ & fields) d) Percentage of female staff in grade 16 and above e) Percentage of female applicants for posts grade 16 and above f) Percentage of female appointments for posts grade 16 and above g) % of planned evaluations of staff development /training activities (for application of learning in the workplace) that take place 17.1.h) Percentage of total Field staff that have completed the online ethics training 17.1.i) Percentage of staff who have completed their end of cycle review on time (teachers) 17.1.j) Percentage of staff who have completed their end of cycle review on time (non-teachers) 17.1.k) Average time for recruitment of daily paid from time of request to time of hiring [FS] 43

50 17.1.l) Number of participants who received humanitarian /emergency response related training [FS] 44

51 Annex 2: Financial Performance by Resources (Staff Costs and Non-Staff Costs) To be completed upon finalisation of budget process and UNRWA Blue Book (estimated 30 June 2013) 45

52 Annex 3: Table of Priority Projects All projects for Syria will be presented under the Syria Humanitarian Assistance Response Plan and updated on a periodic basis. 46

53 Annex 4: Risk Management Plans for Implementation Plan Top Risks* Event Causes Consequences Mitigation/coping mechanism Indicator(s) Strategic/programmatic Agency Wide -Implementation targets not met -Effectiveness in management and governance declines - Change (reforms) failure - Inadequate assessment, planning and monitoring of implementation plans, projects and/or reform strategies - Resistance or lack of ownership to targeted results - Lack of capacity to implement biennium plans / reform strategies - Decrease in compliance with UNRWA norms and standards - Stakeholder apprehension to adjustments in service delivery - Organisational change/ reform fatigue - Failure to meet and/or demonstrate results to stakeholders - Status quo maintained - Increased transition costs and time lines for reforms - Increases in risk profiles across UNRWA Top Risks - Periodic programmatic and financial monitoring for implementation plans and/or reform strategies - Communication with key stakeholders (staff, beneficiaries, hosts and donors ) in the reform process - Institutionalisation of project / programme cycle management - Regular biennium plan implementation monitoring through Field-based Quarterly Management Reviews and semi-annual Results Reviews - Regular monitoring of reform strategies through annual reports - Periodic review and update of UNRWA Top Risks - Establishment of an internal communication policy and action plan Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks) -Security and access constraints and continuous and unpredictable changes in operational environment - Number of beneficiaries and UNRWA staff affected by emergency is increasing - Inability to maintain programme quality standards 47 - Implementation of SFO's Emergency Management Structure - Adopting of adequate remote management modalities in phases,

54 continuously in accordance with evolution of the risk and SFO's Remote Management Framework - Securing the ownership and capacity building throughout the process of gradual delegating of management and decision making authority to area staff Event Causes Consequences Mitigation/coping mechanism Indicator(s) Financial Agency Wide -Shortfall in donor aid commitment -Decline in purchasing power -Efficiency of expenditures declines - Donor fatigue - Competition from other emergencies or regional issues - Increase in demand for services - Price increases for goods and services - Incorrect financial management and discipline - Project(s) implemented with recurring cost implications to GF - Reduced donor contributions - Increased income requirements - Funding gap widening - Inability to deliver services - Inability achieve planned results - Reduction in quality, decline in reputation in UNRWA - Strategic approach to fund raising - Regular dialogue with donors and host authorities - Maintain robust financial and management reporting systems - Accountability of budget holders - Aligned programme and budget planning - Robust and transparent budget allocation processes - Prioritization of projects - Implementation of the Resource Mobilisation Strategy - Regular dialogue through AdCom and SubCom scheduled forums - Development of an Accountability framework - Budget hearings, project prioritization processes held annually Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks) - Decline or inability to process finance transactions - Crash/ hibernation of banking sector - Cash payments/transport limitation due to insecurity - Closure of banking operations due to UNRWA not able to distribute cash 48 - Alternative finance procedures (advance payments, alternative bank accounts, etc) Supply chain in place and supplies

55 conflict assistance to refugees Preparedness for food and NFI distribution as an alternative available for distribution Event Causes Consequences Mitigation/coping mechanism Indicator(s) Hazards Agency Wide -Man-made conflict and/or natural disasters -Personnel safety and security - Unjust or inequitable shifts in geopolitical environment as perceived by stakeholders - Area staff rules and regulations for safety and security are not covered by UNSMS framework - Lack of infrastructure maintenance leads to unsafe working conditions - Evacuation of international staff - Increased incidents of violence, accidents and/or damage and/or loss of UNRWA assets - Staff insecurity and potential for loss of life and/or limb - Lack of adequate duty of care standards on safety and security - Disruption to service delivery - Establish field-specific plans to mainstream safety and security - Conduct training for personnel in safety/security assessments, first aid and provision of appropriate tools - Strengthen safety and security personnel with capacity - Implementation of the Security Information Management System - Conduct periodic training in safety and security for identified personnel - Ensure planned safety and security staff posts are filled Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks) Event Causes Consequences Mitigation/coping mechanism Indicator(s) Operational Agency Wide - Lack of human resources/capacity - Non-competitive salaries and other benefits - Inability to achieve desired organisational goals - Adequate workforce plans for filling vacancies with internal staff - Unplanned vacation rate, days lost to strike action - Sustained - Lack of career development and training opportunities - Low morale, industrial action - Increased attrition rates, - Salary surveys are used to monitor pay scales - Periodic or scheduled salary surveys are conducted 49

56 disruption and/or - Inability to match market conditions in recruitment challenges - Proactive staff development is - Staff development policy in place inadequacy of ICT certain specialized areas - Loss of institutional memory, undertaken - Annual work plan for DIOS in place - Procurement related fiduciary risks - Lack of capacity and/or resources in ICT support - Poor oversight and/or processes in place including business continuity - Poor systems in place to support service delivery and informed decision making - Business continuity plans are made for critical systems (including secondary and tertiary redundancies) - UNBOA/DIOS audit findings (e.g., addressed : not addressed >0) - Increase in audit findings related to fiduciary risk - Robust auditing mechanism in place Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks) - Lack of / inability to quickly develop emergency required skills/capacity - Inability to retain qualified area staff due to spread of conflict and security risks - UNCT/SMT international staff ceilings (reductions) - Inability to reach the office or/and work from home - UNRWA emergency roster utilization - Establishment of rosters for daily paid workers - Relocation of available staff to cover critical roles/positions - Targeted capacity building trainings - Implementation of rotation system for international staff -Establishment of the ICT back-up system at alternate office location - Days lost due to conflict - Staff lost due to conflict - UNRWA installations/ facilities lost due to conflict Event Causes Consequences Mitigation/coping mechanism Indicator(s) Socio-Political Agency Wide - Unfavourable changes in regulatory environment - Political motivations exploiting the principle-agent paradigm - Lack of understanding of UNRWA - Increase in administrative burden and transaction costs due to increase in complaints - Unfavourable media coverage - Conduct and/or ensure that trainings are undertaken on guidance on neutrality or embedded in relevant training - UNRWA Representative Offices are engaged to facilitate dialogue with interlocutors and stakeholders - Periodic scanning of environment and 50

57 - Beneficiary mandate, rules and regulations targeting UNRWA sessions regular updates in Management expectations - Lack of communication and/or misinformation regarding UNRWA goods and services provision - Expanding needs due to socio-economic situation - Interference in procedures and policies from external stakeholders - Demands for increasing existing service provision or new programmes - Maintain robust dialogue with stakeholders - Maintain a community participatory approach in service delivery Committee Meetings Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks) - Breach (real or - Political motivations exploiting the - Disruption to delivery of - Maintain/ insisting on sensitive perceived) in humanitarian paradigm humanitarian assistance messaging UNRWA neutrality - Increase in staff insecurity and access constrains * All events in risk register considered high likelihood and high impact 51

58 Department of Planning Headquarters - Amman Amman, Jordan Tel: +962 (6)