Asia earthquake and tsunamis Regional strategy and operational framework for the Red Cross and Red Crescent Movement

Asia earthquake and tsunamis Regional strategy and operational framework for the Red Cross and Red Crescent Movement March 2005

International Federation of Red Cross and Red Crescent Societies Any part of this handbook may be cited, copied, translated into other languages or adapted to meet local needs without prior permission from the International Federation of Red Cross and Red Crescent Societies, provided that the source is clearly stated. The maps used do not imply the expression of any opinion on the part of the International Federation of Red Cross and Red Crescent Societies or National Societies concerning the legal status of a territory or of its authorities. Maps: sources UNAIDS. Cover photo: Yoshi Shimizu/International Federation Devastated resort beach in Khao Lak, Thailand. 01-2005. 2005 International Federation of Red Cross and Red Crescent Societies PO Box 372 CH-1211 Geneva 19 Switzerland Telephone: +41 22 730 4222 Telefax: +41 22 733 0395 Telex: 412 133 FRC CH E-mail: secretariat@ifrc.org Web site: www.ifrc.org

1 Foreword In a matter of minutes the tsunami that surged across the Indian Ocean on 26 December 2004 had taken hundreds of thousands of lives and destroyed the livelihoods of many more, leaving them homeless and numb in their grief. It will take years to rebuild what the tsunami destroyed. But in a stroke, it also opened our eyes to a human condition. Around the world, poor people live fundamentally insecure lives. Exposed to hazards like floods, landslides, storms, droughts or earthquakes, living in the most exposed and dangerous environments, without resilience, vulnerable communities have little means of protecting themselves against the impact of disaster. The many, and increasingly frequent, minor emergencies that go unnoticed by international media are a daily reality for the disadvantaged somewhere around the globe. For the Red Cross and Red Crescent Movement (the Movement), the tsunami was a call for action. With the overwhelming generosity of the global community, we were given the possibility not only to meet the immediate needs for survival, protection and early recovery of the tsunami affected populations, but also to help them restore their shattered lives and livelihoods. We were also given a new opportunity, the means to address the predicament of vulnerable communities throughout the wider region of the Indian Ocean, Southeast Asia and South Asia. It is a unique opportunity not only to meet the immediate needs of the affected population but also to take forward the global commitment made at the 2nd World Conference on Disaster Reduction, held in Kobe, Japan in January 2005, to work with communities, governments, the United Nations and NGOs to build a culture of disaster resilience. The Indian Ocean earthquake and resulting tsunami has further given credence to the statement that 'disasters are a humanitarian and a development concern'. While evidence suggests that measures to mitigate the impacts of hazards - such as early warning systems and typhoon shelters - have contributed to reducing the numbers of people killed, so called 'natural' disasters are affecting an increasing number of people. Badly managed development, environmental degradation, poor governance and a lack of respect for human rights have actually conspired to increase the numbers of vulnerable and impoverished people living at risk. There is now wide recognition that the impact of disasters on all aspects of development is undermining efforts to achieve the UN s Millennium Development Goals (see Annex 2). The Kobe Conference emphasized the need to put disaster risk reduction at the centre of political agendas and national policies. The International Federation has in turn committed to a strategy to reduce disaster risk by building community resilience through preparedness for response activities, small scale mitigation, education, advocacy and partnerships. This Regional Strategy and Operational Framework is the product of consultations between all the components of the Movement - the International Committee of the Red Cross (the ICRC), the International Federation of Red Cross and Red Crescent Societies (the International Federation), and the National Societies both of the affected countries and those partner societies wishing to offer aid and support effectively a collaboration of more than 30 Red Cross Red Crescent entities around the world. It sets out the strategic vision, cooperation and coordination principles, and overall programmatic mission of the Movement for its work in both conflict and non-conflict affected communities, while addressing vital cross-cutting issues such as gender, equity and capacity building. Country-level plans of action prepared to complement this document form the basis for the 2005 emergency and recovery activities that will be detailed and presented with final budgets in mid-april. This document summarizes the Movement s achievements to date and was drafted with a section containing issues that required final strategic Movement agreement at the Red Cross Red Crescent Tsunami Response Forum held in Hong Kong from 3-5 March 2005. More importantly, this document proposes an agenda for strategic direction to ensure future programmes continue to develop within the collectively prescribed and agreed modalities of coordination and cooperation to maximize humanitarian impact on vulnerable people.

2 Contents 1 Background 5 2 Movement strategy and coordination 7 3 Trans-regional initiatives 17 4 Movement communications 20 5 Secretariat structures 22 6 Key strategic issues addressed by the movement at the Hong Kong forum 23 Annex 1 Hong Kong Declaration 25 Annex 2 What disaster risk reduction can contribute towards meeting the Millennium Development Goals (DFID, 2005) 27

3 In brief Till Mayer/International Federation This document presents a regional strategy and operational framework for the Red Cross and Red Crescent Movement s response in tsunami-affected countries and regions. Corresponding to a joint statement issued on 2 January 2005 by the International Federation of Red Cross and Red Crescent Societies (the International Federation) and the International Committee of the Red Cross (ICRC), the International Federation has assumed the responsibility to provide the general strategy, operational overview and guidelines for the whole region, and to lead the development of common country plans in Asia and East Africa. Children in a Sri Lankan refugee camp after the disaster. This framework is the result of a series of joint assessments of needs and capacities that have been and are being undertaken collaboratively by various Movement components. While indicating how the Movement is currently addressing ongoing immediate relief needs in some affected countries, it sets out an overall operational framework with priority programmes and coordination mechanisms to meet the short- and long-term recovery needs of the tsunami and risk-affected population and rebuild and reinforce the capacities of the host National Societies, with a time span through end of 2010.

4 International Federation of Red Cross and Red Crescent Societies A couple collect their belongings from the remains of their home in the severely damaged Mount Lavinia district, south of Colombo, Sri Lanka, December 28, 2004. REUTERS/KIERAN DOHERTY/Courtesy of www.alertnet.org

5 1 Background On 26 December 2004, an earthquake measuring 9.0 on the Richter scale struck the area off the western coast of northern Sumatra triggering massive tidal waves or tsunamis and inundating coastal areas of countries around the Indian Ocean rim, from Indonesia to Somalia. The disaster affected millions of people along thousands of kilometres of coastline in 13 countries over a wide geographical region, with the most severely affected areas being located in zones which for years have been the theatre of intractable armed conflicts. Bangladesh ad India India Myanmar ar Thailand and 0 500 1,000 km 6,000 km Somalia 5,500 km 5,000 km 4,500 km 4,000 km 3,500 km Seychelles les Sri Lanka a Maldives 3,000 km 2,500 km 2,000 km 1500 km 1,000 km 500 km Malaysia aysi Indonesia nesi Source: ReliefWeb Map Centre Date: 26.12.2004 Time: 04:21:25 UTC Location: 6.89N 92.89E Nicobar Islands India Magnitude: 7.5 Date: 26.12.2004 Time: 00:58:50 UTC Location: 3.30N 95.78E West coast of northern Sumatra Indonesia Magnitude: 9.0 Tsunami waves of this magnitude are rare in this region and no tsunami early warning system similar to that in the Pacific Ocean basin was in place. With the notable exceptions of Bangladesh and Kenya where early warnings were effective, community awareness and preparedness was thus very low, resulting in a very high death toll and widespread devastation of socio-economic infrastructures and livelihoods. Over 273,000 1 people were killed, 7,200 are missing with more than 2.4 million affected. Families from 104 countries throughout the world lost contact with loved ones. The conflict-prone province of Aceh, on the Indonesian island of Sumatra, which was closest to the earthquake epicenter and the consequent tsunamis, was the hardest hit. To date, tremors of various intensities continue to be reported along the shorelines of the Indian Ocean, adding further psychological stress to already traumatized communities. In Indonesia and Sri Lanka, this pan-regional catastrophe triggered one of the largest ever local responses orchestrated by the host National Societies, which were further supplemented by equally 1 In Indonesia and India, the number of dead includes those listed as missing. This will however be made official in Indonesia only one year after the disaster.

6 International Federation of Red Cross and Red Crescent Societies substantial international aid operations. In the days immediately after the disaster, UN agencies, governments, Red Cross and Red Crescent societies, and international and local NGOs all sprang into action, with massive amounts of relief supplies and staff pouring into the disaster areas. The Red Cross and Red Crescent Movement, in the affected countries and internationally, mobilized some 22,000 volunteers and hundreds of international staff from some 40 National Societies. Between 26 December 2004 to 24 March 2005, the International Federation coordinated the deployment of 18 Emergency Response Units (ERU) and 277 relief flights into Asia, in collaboration with the ICRC and in coordination with the UN Office for the Coordination of Humanitarian Affairs (OCHA). To date over 800,000 people have received some form of assistance coordinated by the International Federation. (For operational details and updated achievements in each country with tsunami operation, please refer to the 50 operations updates published through March on the International Federation s website available on www.ifrc.org). Yoshi Shimizu/International Federation The ICRC, long established and operational in the conflict areas in Indonesia and Sri Lanka, was able for its part to provide a range of emergency supplies and services hours after the disaster together with the host National Societies. The ICRC also deployed a field hospital in the two countries and has been providing overall coordination for restoring family links with the Red Cross and Red Crescent societies in all tsunami-affected countries. This network of tracing services, together with the ICRC delegations, has been a unique tool at the disposal of the affected population. The tsunami disaster generated an unprecedented outpouring of support and generosity across the world from individuals, governments and the corporate sector. As of 21 February 2005, global Red Cross Red Crescent fund raising totals more than two billion Swiss Francs. This amount raised by 65 National Societies is unprecedented from a Movement perspective and surpasses, for instance, in absolute terms the combined total of International Federation appeal targets for Asia/Pacific since 1919. For National Societies too, the sums raised are huge, particularly when set against their annual budgets in a normal year. More than 90 per cent of funds raised by the Movement have come from individual donors. In addition, some traditionally recipient National Societies became donor societies as they actively engaged in fundraising for tsunami relief activities. On-line donations through official Red Cross Red Crescent websites all over the world have reached levels never seen before. In some instances, the immediate emergency relief phase has been prolonged and continues, but in others the Movement will be able to move forward rapidly to short-term recovery and even longterm recovery, reconstruction, and capacity building. Nearly two months after the disaster, the authorities and aid agencies in most of the affected countries declared that the emergency phase of relief work was practically over, though longer-term Red Cross Red Crescent relief support continues, with the more critical tasks of recovery and rehabilitation already underway. This document combines early National Society and Field Assessment and Coordination Teams (FACT) assessment reports, and the subsequent appeal and programme extension, with the work of the Recovery Assessment Teams and that of the Movement s permanent structures in the region, and reflects both the complex nature of this disaster and the Movement s first level of planning to meet relief and recovery needs up to the end of 2005 and from 2006-2010.

7 2 Movement strategy and coordination Overall Movement strategy in response to the disaster Clear strategic direction is required given the extraordinary nature of the disaster and the complexity of the emergency and recovery response. In addition, there are numerous challenges to plan and implement coherent programmes incorporating all components of the Movement in a coordinated manner, collaborating as appropriate with external governmental and humanitarian institutions throughout the region. The basic elements of this strategy are as follows: 1 building on the nature and experiences of the emergency response, utilizing the broad capacities and skills of the Movement s components, to plan and implement a range of early and long-term recovery programmes guided by established standards and best practice, promoting disaster risk reduction and community resilience; 2 establishing new in-country coordination structures that ensure principled and coherent action and effective collaboration between the Movement components; ensuring effective coordination with central and local government authorities in the affected countries as well as with the UN specialized agencies and other international and national agencies; 3 introducing new strategic elements to strengthen inter- and intra-agency coordination and response; and, 4 establishing a robust accountability framework, ensuring transparent and regular narrative and finance reporting to all stakeholders, including beneficiaries, private, institutional and corporate donors and governments. Below follows in some detail a further description of the main features of the four basic strategic components. 1 Building on the nature and experiences of the emergency response, utilizing the broad capacities and skills of the Movement s components, to plan and implement a range of early and long-term recovery programmes guided by established standards and best practice, promoting disaster risk reduction and community resilience 1 Recovery strategy The tsunami disaster, impacting on countries of varying size and resource base across a quarter of the globe, underscored the urgent need to integrate some of the key aspects of disaster risk reduction programming which emerged from the Kobe Conference discussions. While reducing vulnerability is central to the International Federation s Strategy 2010, both the Red Cross Movement and the states at the 28th International Conference of the Red Cross and Red Crescent have committed to minimize the impact of disasters through the implementation of disaster risk reduction measures and improving preparedness and response mechanisms (International Federation, Agenda for Humanitarian Action 2003). This commitment has been further reinforced through the Hyogo Framework for action 2005-2015 at the Kobe Conference which specifically calls for:

8 International Federation of Red Cross and Red Crescent Societies the more effective integration of disaster risk considerations into sustainable development policies, planning and programming at all levels, with a special emphasis on disaster prevention, mitigation, preparedness and vulnerability reduction; the development and strengthening of institutions, mechanisms and capacities, in particular at the community level, that can systematically contribute to building resilience to natural hazards and disasters; and, the systematic incorporation of risk reduction approaches into the design and implementation of emergency preparedness, response and recovery. The Movement strategy for the tsunami recovery programme must, therefore, recognize: that while the cornerstone of National Society disaster preparedness work will continue to be conventional activities 2 in disaster preparedness and disaster response, there are legitimate opportunities to work at the local level to decrease vulnerability and strengthen resilience; that reducing disaster risk is not a sector but rather about looking at all interventions such as house reconstruction, water and sanitation or livelihood support through the lens of disaster risk. Moreover, local level-mitigation projects should be complemented by public education and advocacy at all levels; and, that with the growing realization that disasters undermine development by contributing to persistent poverty, there is now considerable scope not only for new partnerships but for the Red Cross Red Crescent Movement to be influential in policy dialogue with governments, UN and other local and regional bodies. Yoshi Shimizu/International Federation In future, all National Society and International Federation programming should strive to: strengthen National Societies and programmes to build local resilience as well as preparedness, response and recovery capacities; integrate the ICRC s Safer Access Framework to support work with conflict-affected communities; build gender sensitization into all relevant vulnerability assessment tools and programme planning frameworks; and, utilize the role of National Societies to advocate with key policy makers to promote disaster risk reduction in all developmental policies and programmes. The following framework for disaster risk reduction provides the Movement with one model which is widely shared by other external institutions (UNDP, etc.) to support its overall approach to community and institutional development. 2 Disaster preparedness activities typically include contingency planning, early warning or search and rescue.

Asia earthquake and tsunamis 9 Sustainable development context Socio-cultural The focus of disaster risk reduction Awareness raising for change in behavior Polictical Risk factors Vulnerability - Social - Economic - Physical - Environmental Hazards - Geological - Hydrometeorological - Biological - Technological - Environmental Vulnerability / capability analysis Hazard analysis and monitoring Knowledge development Information Education and training Research Risk identification and impact assessment Political commitment International, regional, national, local levels Institutional framework (governance) - policy development - legislation and codes - organizational development Community actions Ecosystems/Enviromental Early warning Disaster impact Preparedness Emergency management Recovery Application of risk reduction measures Environmental management Social and economic development practices (including poverty alleviation, livelihoods, financial mechanisms, health, agriculture, etc.) Physical and technical measures - land-use/urban planning - protection of critical facilities Networking and partnership Economic Source: International Strategy for Disaster Reduction (ISDR) Living with Risk - A global review of disaster reduction initiatives 2004 version

10 International Federation of Red Cross and Red Crescent Societies 2 Priority programmes The above diagram implies the inclusion of all the core programme areas of Strategy 2010 which are further elaborated programme priorities set out below. Whereas the sectoral priorities are presented under specific headings below, it should be noted that all programmes need to be linked at operational level to ensure the integrated approach to development needed to address the multiple vulnerabilities experienced by affected populations. For example, a reconstruction activity should be integrated with a health and livelihood component to enable affected families or communities to increase their overall level of sustainable well-being. Emergency and post-emergency relief Tracing and re-establishing family links (RFL) Health Livelihoods Reconstruction Disaster management (DM) The immediate needs of the affected population in terms of food and non-food relief items, emergency shelter materials, emergency health care, including psycho-social support and water and sanitation systems, are met in a timely and efficient manner, sustaining them through the immediate aftermath of the disaster and, if necessary, through ongoing relief assistance for as long as is required. Unresolved cases of separation are dealt with, and tracing services of National Societies developed and strengthened through training of staff and volunteers and development of strategies allowing sustainability, led by ICRC which will harmonize initiatives in the tsunami-affected countries with global programming in this field. Health, basic welfare, malaria, dengue and other disease surveillance, monitoring and control, water and sanitation systems in affected com munities are rebuilt. National Society capacities for health response and preparedness based on volunteer and community education are enhanced thereby contributing to strengthening sustainable health systems complementary to governmental efforts. Meanwhile, ongoing longer-term assistance in the areas of psychological and social support is provided for both the affected community and response workers. For those affected people who have recovered from trauma, the first priority is to re-establish livelihood and to regain control over their lives. To support this return to productive status, strategies (including cash-for-work) will be implemented to assist affected people to recover productive assets, reduce vulnerability of their households to future hazards and disasters, and assist the local economy to recover in a sustainable way while families and individuals also become economically self-sufficient. Affected communities receive appropriate support, complementary to government efforts, to reconstruct and develop their social, health, educational and household-based coping mechanisms and infrastructures through participatory actions and projects in a manner which is in keeping with local and national standards and expectations, conducive to community cohesion and empowerment, and resilient to possible future disasters. The medium- and longer-term needs of the most vulnerable in disasterprone areas are addressed by improving the ability of communities at

Asia earthquake and tsunamis 11 risk to cope with future disasters, strengthening and where possible replicating early warning systems that were successfully activated in some countries. At the same time, the capacities and capabilities of National Societies will be strengthened to support community-based disaster preparedness and risk reduction programmes while preparing for and responding to disasters in a timely, efficient, and coordinated manner linked to regional and international response mechanisms. Humanitarian values Organizational development (OD) and capacity building (CB) The sensitivities of introducing significant resources into sub-regions with social, political, economic and ethnic tensions will be addressed by using Better Programming Initiative processes. This is to ensure that the equitable rights and dignity of all affected people are maintained in a manner which will avoid creating further tensions, violence and dis crimination within the affected populations. These programmes shall be developed in non-conflict areas and in full compatibility with the existing protection and communication activities of the ICRC. The capacities of National Societies in the tsunami-affected countries and sub-regions are developed and enhanced at the national, branch, and community levels to ensure that they attain and maintain the capability to implement relevant programming during and after the tsunami operation, and reach or exceed the standards of institutional effectiveness embodied in the well-functioning and well-prepared National Society concepts. All components of the Movement will seek to have integrated activities around branches of the National Societies assuring the anchoring of activities in the communities. 2 Establishing new in-country coordination structures that ensure principled and coherent action and effective collaboration between the Movement components; ensuring effective coordination with central and local government in the affected countries as well as with the UN specialized agencies and other international and national agencies Externally the scale of the tsunami operation requires mechanisms for enhanced cooperation and coordination between the Movement, other institutions such as national authorities coordinating recovery programming, other humanitarian actors, OCHA, UN specialized agencies, and the NGO community. Agreement has already been reached in principle on the creation of a mechanism to ensure effective coordination between the International Federation, the ICRC, and OCHA at headquarters and field levels, and the relevant components of the Movement participate in OCHA-led programme and sectoral coordination task forces in the field. The International Federation, meanwhile, has created a headquarters senior staff position dedicated to ensuring inter-agency cooperation and coordinated service delivery with the UN family. In the first days of the disaster response the two international institutions of the Movement, the ICRC and the International Federation, agreed on a coordinated approach for their support to the sub-regions in the aftermath of the tsunami, based on their respective mandates, assets, and capacities, and on their historic involvement with the National Societies in the region. In reaching this agreement the two institutions were also guided by the principles of cooperation embodied in the Seville Agreement of 1997. In a Joint Statement issued by the International Federation and the ICRC on 3 January 2005, it was agreed that: the International Federation would provide the general overview, strategy, and operational guidelines of the regional operation, and assume general responsibilities in communication as the main Movement spokesperson;

12 International Federation of Red Cross and Red Crescent Societies the host National Societies would have a prominent role in establishing coordination mechanisms and in the implementation of all activities; the ICRC would provide operational coordination in the areas in which it had been operational before the disaster (the north and east of Sri Lanka, Aceh province of Indonesia, Myanmar and Somalia the International Federation would provide operational coordination elsewhere) as well as ensure overall coordination for programmes related to restoring family links in all countries affected by the tsunami; and, the International Federation would lead in the development of common country plans, with priorities being established at field level, as a step towards a fully coordinated and combined approach. A Movement Coordination Framework was drafted and agreed amongst all Movement partners working in Indonesia and Sri Lanka as described in the diagram below. In order to explore the relevance of adapting the Movement Coordination Framework in Africa, a senior National Society leader from the sub-region joined the International Federation s Nairobi delegation to lead the dialogue with respective National Societies and ICRC to replicate a similar Movement initiative to strengthen coordination in that environment. Menbers: Host National Societies ICRC head of delegation International Federation head of delegation Movement platform (decision making body) Responsibilities: Endorse common country strategies and policies for Movement response Identify priorities Maintain external contacts (national and international) Spokesperson for the MTV action Menbers: Host National Societies International Federation representatives ICRC representatives Operational Participating National Sociteies representatives Movement partnership task force (operational coordination) Responsibilities: Overview of humanitarian needs and Movement activities Information sharing and security briefings coordination of activities of Movement components Coordination of Movement activities with those of external actors Propose operational strategies and Opportunities for Movement activities Technical task force/ Commitee Technical task force/ Commitee Movement office (service centre) Technical task force/ Commitee Technical task force/ Commitee

Asia earthquake and tsunamis 13 Of particular note are the technical task forces/committees or working groups, with representatives from all Movement operational partners, including where appropriate representatives from external UN and other institutions to develop shared plans and technical standards. Where necessary, representatives from UN and other institutions may be consulted. The technical task forces/committees work under respective sectoral headings, are responsible for the division of labour between respective Movement stakeholders, developing cross-cutting minimum standards on needs assessment approaches, programme options, baseline surveys, common capacity building strategies across all programmes, and agreeing on common monitoring and evaluation standards and mechanisms. 3 Introducing new strategic elements to strengthen inter- and intra-agency coordination and response; Internally the Movement s response to the Asian tsunami crisis has also called for innovative approaches based on the internal Movement protocols. Some of the new strategic initiatives include: creation of new roles and responsibilities (Special Representative of the Secretary General, Movement Coordination delegates and new types of delegates and regionally recruited personnel in International Federation and partner National Societies as counterparts to host National Societies structures); deployment of new Recovery Assessment Teams (to propose Movement-coordinated short- and medium-to-long-term recovery programming plans); new cooperation, programme coordination, Movement Service Centre and service agreements, and networking mechanisms (drafted and agreed at country coordination meetings in Indonesia and Sri Lanka and planned for the Maldives); increased numbers of information, communications and reporting personnel at country levels (to generate appropriate levels of accountability both to vulnerable communities as well as to public and institutional donors); real time evaluation processes to review emergency operations and provide inputs to future directions; movement mapping exercises conducted at the country coordination meetings demonstrating the collective and harmonized contribution of financial, material and human resources by all Movement stakeholders to the objectives set out in the country recovery plans; full scope for all cooperation models to support the host National Societies, from multi-lateral implementation of programmes by the International Federation secretariat mobilizing funds from the Emergency Appeal to fully coordinated bilateral projects and programmes implemented by Participating National Societies including the possibility of Participating National Societies integrated and coordinated projects with the ICRC; and, establishment of an independent advisory group, to guide the Special Representative, reporting to the Secretary General. These new approaches are intended to ensure that all programmes adhere to minimum standards as set out in the International Federation s Policy framework (Emergency Response Policies, Development Policy, Gender Policy, Volunteering Policy, Youth Policy, Fundraising Policy etc.), Code of Conduct, and Sphere guidelines. Programmes will be implemented within a coordinated development framework which will aim to: involve all strata in vulnerable communities in designing and monitoring sustainable programmes addressing their identified needs; ensure conflict-sensitive programming; ensure gender participation and equity in all areas of strategic, operational and technical programme planning, resourcing and staffing; ensure a cross-cutting organizational development and capacity building strategy that maintains minimum standards in volunteering management, branch development, and financial and systems development at all levels and in all programmes; and,

14 International Federation of Red Cross and Red Crescent Societies increase accountability by monitoring and communicating the impact on beneficiaries through reporting and communications to vulnerable people and public and institutional donors. To build on its unique positioning, the Movement will have to work in strongly coordinated ways and be seen to be maximizing its specific institutional strengths the harmonized work of its National Societies as respected and experienced humanitarian actors; its extensive volunteer network at the community level; its adherence to a set of Fundamental Principles and its recognized status under international humanitarian law, both of which permit it to work effectively in conflict zones; and its role as a worldwide Movement capable of mobilizing extensive resources both rapidly in the emergency response phase, and, over an extended period, to support long-term recovery. In the immediate aftermath of the disaster, the International Federation despatched Field Assessment and Coordination Teams to three tsunami-affected countries (Sri Lanka, Indonesia, and the Maldives), and tasked its regional and country delegations elsewhere in the affected zone to consult with all stakeholders to identify relief and short-term recovery needs; a similar assessment was conducted in East Africa. The ICRC, meanwhile, carried out its own assessment tasks, sharing the results with the International Federation. Yoshi Shimizu/International Federation In mid-january 2005, the decision was taken to send Recovery Assessment Teams (RAT) to Sri Lanka and Indonesia. These teams, although assembled and briefed by the International Federation, comprised representatives from partner and host National Societies, the International Federation and the ICRC. They were tasked to look beyond the ongoing emergency relief phase of the operation to assess short-term recovery needs (up to the end of 2005), covering such activities as provision of temporary shelter, restoration of livelihoods, and transitional health, water and sanitation issues. In addition, the teams were asked to indicate appropriate lines of programming in the longterm recovery phase (2006-2010). Their detailed findings are available in their individual country level reports, and the programme ideas that were further consolidated are an integrated part of the country and sub-regional plans that will be finalized by mid-april. Country coordination meetings were held in Sri Lanka and Indonesia to debate and agree the Recovery Assessment Team reports and provide consensus building and decision-making mechanisms to ensure that all programmes are properly coordinated and meet overall criteria of acceptability and suitability, consistency, proportionality and flexibility to optimize benefits for the affected population. These new coordination approaches also enable the Movement to link with the overall recovery plans of the national authorities, the presence and activities of the UN and other agencies, and the availability of other resources. The country coordination meetings in Indonesia and Sri Lanka, for example, also enabled Movement partners to draw up collective networking plans to ensure synergy with external institutions to deliver optimal services. A similar meeting is being planned for East Africa in mid-april 2005.

Asia earthquake and tsunamis 15 4 Establishing a robust accountability framework, ensuring transparent and regular narrative and finance reporting to all stakeholders, including beneficiaries, private, institutional and corporate donors and governments. Given the extremely high profile of the tsunami operation and the Movement s obligation of careful stewardship towards both its donors and the beneficiaries of its programmes, a clear process for ensuring multi-faceted accountability is of the utmost importance. The scale and complexity of the tsunami operation requires the Movement to set in place mechanisms to monitor the effectiveness and efficiency of the Red Cross Red Crescent response in an objective and independent manner, to permit operational improvement over time, and to fulfill accountability to beneficiaries, public, partners and donors in the use of resources entrusted to the Movement. The International Federation will take the lead in establishing an enhanced programme oversight and review capacity in the context of tsunami-related operations. The four key aspects of this capacity are monitoring, evaluation, reporting and audit. All oversight activities will be carried out in close collaboration with the ICRC (which will also monitor and evaluate its own programmes), and with host and partner National Societies. Monitoring Regular programme monitoring will be carried out through the normal structures of the International Federation and the ICRC in the field, at country and regional levels in some instances reinforced by additional dedicated human resources as described in other sections of this document - and reflected in the standard reporting mechanisms of the two organizations. In the two worst-affected countries of Indonesia and Sri Lanka, an additional level of monitoring will be provided by the Movement Partnership Task Force foreseen under the Movement Coordination Framework described in Section 2 (above). Elsewhere, including in East Africa, the International Federation will encourage the creation of similar task force structures, under the leadership of the host National Society, to review and monitor programme implementation. Evaluation Evaluation will focus on: measuring the impact of operations against set objectives, utilizing appropriate base-line data; minimizing undue risk in the course of implementation; improving the quality of the operation with regard to management effectiveness, coordination, participation and satisfaction of beneficiaries, resource utilization, and compliance of Movement partners with agreements, policies and standards such as Sphere; and, identifying the added value of Movement characteristics such as the Fundamental Principles, utilization of local volunteers, etc. A committee, comprising of five Movement secretaries-general, will also be created to oversee the accountability and evaluation systems. The committee will convene quarterly and will be supported by the International Federation secretariat s monitoring and evaluation department, whose staff will be strengthened to meet the extraordinary evaluation needs of this operation. The International Federation has commissioned three external consultants to undertake real time evaluations of the first phase of the tsunami operation through participatory visits to Indonesia and Sri Lanka, respectively. The objectives of this activity are to: take stock of progress in the areas of operational management (both field and secretariat), Movement cooperation and coordination, and relief, and provide an objective basis for review of the emergency operations while identifying solutions to problems and inputs to future directions; and, provide recommendations to host and partner National Societies, the International Federation s secretariat and donors for any necessary changes to management and coordination, implementation, and the future work programme of the operation.

16 International Federation of Red Cross and Red Crescent Societies The real time evaluation currently undertaken in Indonesia and Sri Lanka will continue on a regular basis, followed by annual evaluations in greater depth, and a final evaluation at the end of the operation. The International Federation is already participating in external non-movement forums such as the meeting convened by OCHA and the Active Learning Network for Accountability and Performance in Humanitarian Action (ALNAP) in Geneva in February 2005 on options for developing an interagency, sector-wide approach to evaluating tsunami assistance and increasing sector wide learning. The meeting also looked at the emergence of a possible evaluation coalition which would increase the comparability of evaluation reports and reduce any unnecessary duplication of effort between agencies. This process would aim to strengthen overall lesson learning, accountability, and mutual support and transparency. Yoshi Shimizu/International Federation Reporting Partner National Societies implementing programmes in a coordinated bilateral context will be responsible for carrying out their own monitoring procedures including reporting. Where necessary the International Federation will provide training to host National Society staff to improve their programme monitoring capabilities. The International Federation has recruited a tsunami reporting coordinator who is developing reporting strategies for the operation in collaboration with the International Federation s Asia Pacific regional reporting unit (RRU) based in Kuala Lumpur and a team of reporting professionals working in the tsunami-affected countries and regions. Standard International Federation operations updates have and will continue to be issued on a regular basis to reflect the progress and impact of the operation, and to signal potential problems and proposed solutions. In addition to that, the International Federation s Asia Pacific regional finance unit (RFU), also based in Kuala Lumpur will continue to play a key role in financial management and financial reporting related to the operation. Audit To meet this imperative a rigorous audit process will be instituted to focus primarily on whether procedures are followed as well as their appropriateness, and on effective management of all aspects of the programme. An internal audit visit plan will be established by the International Federation to conduct compliance and internal control audits of International Federation offices involved in the tsunami operation by mid-2005, and financial audits of the programme by the end of the year. Donor external audits will be gathered under one plan where feasible and commissioned and communicated early in the programme cycle. ICRC will conduct auditing exercises in relation to its own offices and programmes, following its standard procedures.

17 3 Trans-regional initiatives When governments in the Indian Ocean rim gathered in Phuket, Thailand, at the end of January 2005 to jointly analyze their lack of preparedness for the tsunami, they agreed to establish a regional tsunami early warning system. 3 When embarking on this unique trans-regional initiative, however, governments also recognized that technological solutions are available and have been tested, but are insufficient to protect coastal communities. An early warning system will be ineffective without risk and hazard assessment, as well as formulation, dissemination and communication of warning messages and the knowledge and preparedness of communities to act. Governments concluded that this cannot be achieved without close cooperation among national agencies and institutions, civil society and local communities. And tsunamis being extremely rare events, preparedness has to build on existing warning systems in order to promote a multi-hazard approach. It is only when communities at risk know that a preparedness system is designed to protect them from familiar and frequent threats that they will engage in the necessary community-based programmes. This means a challenge for the Red Cross Red Crescent Movement and for National Societies in the region in particular. Their auxiliary relationship with governments, their experience in disaster response, with an extensive reach into vulnerable communities across the region, supported by an international network, make them the ideal partner for governments in building the community element of regional and national early warning and disaster preparedness. To meet this challenge, it is clear that the Movement will need to continue to strengthen a series of long-term initiatives to enhance Red Cross Red Crescent disaster management capacities across the tsunami-affected region and beyond. This will require networking, together with National Societies of the region, with external institutions working on similar risk reduction and early warning systems. It also means the potential for interesting partnerships between the UN and the International Federation. In order to build national disaster reduction platforms, as defined at the Kobe conference, the UN will support governments while the International Federation has the responsibility to support National Societies in their respective roles. The promotion of strengthened partnerships between National Societies and their governments would strongly benefit from a coordinated approach between the International Federation and the UN, with the International Strategy for Disaster Reduction (ISDR) and UNDP as the primary and logical partners. Other examples could include working with the International Meteorological Office and the Red Cross Red Crescent Climate Centre in the Netherlands on early warning systems, with UN-Habitat and the UN Environment Programme (UNEP) on appropriate building techniques and coastal belt rehabilitation strategies. Consultation and advice on programme design can be integrated from agencies such as UNIFEM and Disabled Peoples International to reflect special needs. This section deals with proposed initiatives at the trans-regional level that is, programming designed to mobilize resources and deploy common programmes across several of the geographical areas impacted by the tsunami South Asia, Southeast Asia, and East Africa. Building on local, national and regional capacities and ultimately aiming to enhance them, these initiatives will underpin important elements of coherence and coordination on a wider, transregional level. 3 Phuket Ministerial Declaration on Regional Cooperation on Tsunami Early Warning Arrangements, Phuket, Thailand, 29 January, 2005

18 International Federation of Red Cross and Red Crescent Societies Strengthening regional disaster management and response mechanisms The Regional Disaster Response Teams (RDRTs) played a significant part in mobilizing intraregional culturally appropriate support between sister National Societies across the Asia Pacific region. In such a highly disaster-prone region of the world, it remains a strategic and practical imperative of the International Federation to further strengthen these mutual support networks between the National Societies of the region. Yoshi Shimizu/International Federation The expansion of a pool of speciallytrained personnel under the current interlocking Field Assessment and Coordination Team and Regional Disaster Response Team programmes will continue, with a focus on: recruitment and training of FACT team leaders to provide the surge capacity required in disaster response; increasing health participation in the teams; and, diversification of FACT teams through recruitment and training of members from regional National Societies. The effective contribution made to the post-emergency phase planning through the deployment of the Recovery Assessment Teams, not only in the tsunami operation but a year earlier in Bam, Iran (following the earthquake there on 26 December 2003), opens the possibility of institutionalizing this tool for future disasters. In health, the trans-regional trainings of communitybased first aid volunteers will contribute to a solid base for learning about public health response in disasters including epidemic control and disease prevention. The real time evaluations in Indonesia and Sri Lanka (see section 6) will also provide important learning and feedback on the appropriate parts of the response network which require further strengthening. The International Federation will further refine and develop its international tools for disaster management and response over the coming five years. This will include expanding the Emergency Response Unit programme, especially in the areas of relief, logistics, administration and telecommunications, and with special attention to National Societies in the region that have an emerging ERU capacity. In telecommunications, in particular, the International Federation plans a permanent telecommunications capacity in the Asia Pacific region to manage continuous training of National Societies. Improving contingency planning and disaster management Building on existing programmes, the International Federation will step up its efforts to improve Movement disaster response contingency planning, reinforcing local capacities and linking them to regional and international capacities. Issues to be addressed could include activation and coordination mechanisms, regional and cross-border risk mapping and response protocols, and the encouragement of a common approach in needs assessment training and the managing of disasterrelated information. Regional disaster management capacity and expertise will be created in Kuala Lumpur, supporting International Federation regional delegations in disaster response and utilizing the International Federation s main logistics base in Dubai.

Asia earthquake and tsunamis 19 This resource will promote National Societies contingency planning, supply management, and Movement participation in early warning and risk monitoring. The Federation will proactively seek a role for the Movement in multilateral initiatives such as the UN s International Recovery Platform (IRP) concept and the recommendations stemming from the January 2005 Kobe conference on disaster reduction, and will focus on its preferred approach of building a solid disaster response network upon enhanced local capacities. Upgrading response resources and infrastructure In order to ensure timely and effective availability of emergency relief supplies in the event of a future largescale natural disaster, the Federation will increase its overall supply targets through both stock holdings and supplier agreements so that adequate stocks of relevant supplies will be available out of existing/future bases at Dubai, Kuala Lumpur, Nairobi, Bangkok, Delhi, Suva, and Beijing. Federation warehousing capacity throughout the region will be expanded, and National Societies will be encouraged to co-locate their stocks with Federation holdings. International Federation The Federation will seek complementary supply solutions and planning synergies with the ICRC, as well as UN agencies, to avoid duplication. Simultaneously, the Federation will review ongoing plans for relief bases in Iran and the Philippines, and will develop its current programming as part of the response element of a global disaster management plan to be elaborated at a later date. Establishing a disaster management trust fund for the Asia Pacific region During 2005 the International Federation will explore with Movement partners the possibility of establishing a trust fund to ensure the sustainability of projects and to facilitate long-term National Societies work to reduce the impact of natural disasters by strengthening mitigation and preparedness measures at the local and national levels. This initiative would involve sharing and discussing the concept with the various components of the Movement, carrying out a review of existing similar mechanisms (both within and outside the Movement), and, should the proposal prove acceptable, establish fund policies, procedures, and grant criteria, as well as an appropriate governance and management structure. If found to be useful and original proof-of-concept studies are positive, the trust fund could be operational by early 2006. Initially the emphasis should be on the tsunami-affected countries, but consideration should also be given to expanding the geographical coverage of the fund at a later date. Grants could be made available to support, among other Movement activities, the strengthening of local, national, and regional response mechanisms, community preparedness, public education and awareness-raising, and local-level low-cost risk reduction measures.

20 4 Movement communications Yoshi Shimizu/International Federation The days and weeks following the tsunami witnessed an unprecedented outpouring of generosity from individuals, corporations, and governments throughout the world. In the early days of the crisis, the Movement fast became the organization of choice for ordinary citizens across the globe to entrust their donations. Media coverage of the disaster prominently featured the Movement as a trustworthy, responsive, and efficient organization. The initial phase is rapidly drawing to a close. The coming months and years present the whole Movement with an extraordinary opportunity to reinforce this positive image. Donors worldwide and the general public will want to know how their contributions have made a difference and what has been accomplished with the funding within the directly affected area and also in pursuit of the wider humanitarian objectives across the tsunami-hit region. A comprehensive communications strategy is under development. It will include a realistic and achievable communications plan with specific actions, products, events and opportunities. The development of the strategy will build on consensus among all Movement actors. A series of key messages will be agreed on and updated regularly to meet the needs of communicators and National Societies. Communications initiatives and plans need to consider certain milestones such as the first anniversary on 26 December 2005, World Red Cross and Red Crescent Day, Volunteer Day, and other key external UN days.

Asia earthquake and tsunamis 21 Based on the 'Joint Communication Protocol' between the International Federation and the ICRC, while appearing within a broad and coordinated Movement action, the International Federation, the ICRC, and the National Societies should clearly maintain their own identities and coherent institutional positioning. The components of the Movement will therefore coordinate, but not merge their communications staff, events, and products (except on exceptional and pre-agreed specific occasions). Each will, however, highlight the global Movement action and give due credit to the work of the other components. Security and acceptance in conflict areas In view of the fact that key affected areas are located in zones of actual/potential conflict or regions of political sensitivity, the components of the Movement must balance their need for visibility with consideration of the over-riding necessity of ensuring acceptance and security as well as maintaining a long-term Movement presence in such areas. In northern and eastern Sri Lanka and in the Aceh province of Indonesia, the ICRC will provide communication guidelines, which will take the above imperative into consideration. The ICRC will continue to provide updated security guidance and maintain the lead in political contacts in conflict areas. Advocacy The visibility achieved by the Movement through its role in responding to the tsunami crisis offers a unique platform for significant advocacy initiatives. In keeping with the International Federation s Guidelines on Advocacy (endorsed by the General Assembly in 2001) as well as the Council of Delegates Resolution of 1999 and having sought ICRC guidance before initiating specific advocacy activities in countries affected by conflict or violence, all advocacy messages must be framed within the Red Cross Red Crescent Movement s mandates, the Fundamental Principles, and Movement Policy and be based on practical experience and verifiable information. Specific communications and advocacy messages will be framed in each country context to ensure that issues related to equity are addressed and that the needs of vulnerable populations are respected. In addition, in the context of the Maldives, where the International Federation and the ICRC will work towards the creation of a new National Society, important advocacy work about the nature of the Movement will need to be undertaken with the authorities and the general public.

22 5 Secretariat structures In order to meet the extraordinary humanitarian challenge and opportunity posed by the tsunami operation, the International Federation is strengthening its structures both at headquarters level in Geneva and in the field. At the International Federation s secretariat, the post of special representative of the secretary general for the tsunami operation has been created, and a senior official with extensive experience of the Movement and of the humanitarian community in general has been recruited and took up the position in early February 2005. He reports directly to the International Federation s secretary general and will be assisted by a recovery coordinator tasked to oversee all aspects of the short- and long-term recovery programmes proposed for implementation in the period between 2005 to 2010. Both of these positions will work in close collaboration with the secretariat s Asia Pacific department, which will retain overall operational responsibility for tsunami-related programming. Altogether, the secretariat is reinforcing its capacities through recruitment or secondment of a total of approximately twenty additional staff members in the areas of logistics, finance, Movement coordination, health, communications, monitoring and evaluation, and other sector specialities. These personnel will be dedicated to the tsunami operation and will ensure effective management oversight, programme advice, and technical and administrative support to an expanded staff in the tsunami-affected region. In the field, subject to the agreement of the host National Societies, the International Federation s presence in the two worst-affected countries, Sri Lanka and Indonesia, will be strengthened through the addition of a total of up to 40 additional delegates in Indonesia and a smaller number in Sri Lanka. These will include one senior Movement Coordination delegate in each of the two countries to ensure that activities carried out by components of the Movement are coordinated proactively and effectively, as well as specialist delegates in relevant technical areas such as health, construction, and water and sanitation, and personnel tasked to ensure effective financial control, reporting, and oversight of the operation. Since building the capacities of the affected National Societies, especially in the areas of organizational development and disaster management is a key thrust of the overall regional strategy, the delegations in the two worst-affected countries will receive reinforcement in these areas, as will the International Federation s regional and country delegations in South Asia, Southeast Asia and East Africa. In Indonesia, with the endorsement of the host National Society and in coordination with the ICRC, the International Federation has opened sub-offices in Banda Aceh and Meulaboh. In East Africa, the International Federation proposes an additional sub-office in the Indian Ocean Islands in addition to the two existing sub-offices in disaster-prone coastal areas to promote and monitor effective disaster management programmes. In addition to this expansion of field staff, the International Federation will also strengthen its representation at the United Nations in New York and Geneva, to cover crucial coordination and representation functions. Finally, the tsunami operation is also supported by the International Federation s established Asia Pacific Service Centre in Kuala Lumpur which presently comprises the regional finance, reporting and organizational development units. The centre will continue to offer, as it has from the onset of this humanitarian crisis, all levels of the Movement components assistance and technical support to ensure well implemented control and management of finances, regular and coordinated reporting, and targeted OD and capacity building support to ensure programmes maximize their impact on the vulnerable. Looking ahead, it is now intended to develop the centre further with the addition of logistics and telecommunications units and, possibly, regional disaster response capacity as well.

23 6 Key strategic issues addressed by the Movement at the Hong Kong Forum Based on the outcome of the Hong Kong Forum, the draft of this document was amended to include the final resolutions. The following issues were notably addressed and agreed by participants attending the Forum: a Movement vision to guide the future phases of the operation; a disaster risk reduction framework as the basis for operational planning; maintaining strategic and practical networking with other humanitarian and governmental institutions; validation of cooperation principles and mechanisms; identification of critical success factors which will enable future operations to achieve their targets; communications and advocacy messages and mechanisms needed to ensure a coherent strategy across the Movement. Risks and assumptions This document is based upon the assumption that the Aceh and North Sumatra provinces, areas of northern and eastern Sri Lanka, and Somalia remain fully accessible to delegates and international presence at a reasonable scale for at least one year from now. Yoshi Shimizu/International Federation The suggestions and opportunities presented in this document must, however, take a series of constraints into account: Taking into consideration the fact that Aceh and Sri Lanka are conflict areas, the security and accessibility are for the time being acceptable but it should not be assumed that this is going to be the case in the long run, and that access with delegates to the area would be ensured. The risk of new major earthquakes, and possible tsunamis, or other natural disasters that will have a severe impact on already traumatized communities, requiring renewed emergency action from the Movement influence ongoing recovery programmes.