Contingency Planning Guidelines A PRACTICAL GUIDE FOR FIELD STAFF. UNHCR Division of Operations Support. August 1996

Transcription

1 Contingency Panning Guideines A PRACTICAL GUIDE FOR FIELD STAFF UNHCR Division of Operations Support August 1996 Contents The Purpose This section covers the "when" and "why" of contingency panning. It ooks at the popuar misconceptions surrounding this activity. It considers the reationship to eary warning, operations panning and needs assessment and identifies indicators which wi suggest when it is prudent to initiate the panning process. The Process This section covers the "how" of contingency panning emphasising the importance of the process necessary to arrive at an effective pan. It describes an approach which is participatory and ongoing and suggests mechanisms which can be estabished in-country to update the pan and maintain the preparedness process. This process is not dissimiar to any effective panning process and as such may be appied equay to operations panning. The Partners This section identifies, and considers the roe of, the various agencies in the panning process. It is a kind of a checkist to ensure that the appropriate actors are invoved at the right stage. The Pan This section sets out a mode format for a contingency pan. These Guideines stress that the pan is simpy a product of the process and as such is constanty changing and requiring update. Nevertheess the pan has an importance as a working too and thus some guidance on the best approach to setting out the document is required. Annexes Annex A UNHCR's Standby Resources Annex B Eary Warning Indicators Annex C Questionnaire for Sector Panning Annex D Exampe Contingency Pan Annex E Overhead Transparencies for Training Annex F Additiona Reading The Preface These Contingency Guideines are written with UNHCR fied staff in mind. The typica reader of this document might be a programme officer or protection officer in a UNHCR fied office where there is considered to be a need to initiate contingency panning or to enhance existing panning processes. This being said, there are eements in these Guideines which have appicabiity to a wide range of staff in a wide range of agencies - whether UN, Government or non-governmenta agencies. Forward panning often takes more effort and perseverance than reactive action and, as such, is not aways seen as a priority. It is hoped that these Guideines wi be a stimuus to those who have hesitated at the idea of contingency panning, and be an effective too to those who are

2 aware of the need, but do not know where to commence or how to proceed. Having begun a contingency panning process one shoud not sit back with compacency. Do not confuse "output" with "impact". The panner shoud ask "Am I reay prepared if an emergency erupts tomorrow?" The honest answer in often unfortunatey negative. There is a danger that contingency panning becomes a mirage rather than a tangibe eement in preparedness. These Guideines coud equay be entited "Guideines for Contingency Actions" since panning without action is simpy ineffective, irresponsibe and even dangerous. Just as this document demonstrates that contingency panning is a process, and as such deveoping and changing over time, so too are these Guideines expected to change as staff gain new experiences and insights into the panning process. We woud wecome feed-back from staff on the Guideines and suggestions for improvements and changes. Section 1 - The Purpose What is an Emergency An emergency has been defined as: "Any situation in which the ife or we-being of refugees wi be threatened uness immediate and appropriate action is taken, and which demands an extraordinary response and exceptiona measures." As wi be noted from the fina cause in the definition, an emergency is defined not by the size or scope of an event itsef, but in the abiity of existing structures and mechanisms to dea with the event. Exceptiona measures require exceptiona panning. The impications of extraordinary and exceptiona nature of the event can be reduced through effective contingency panning. Why is Contingency Panning Important There is a growing reaisation that increasingy more attention and resources are being paid to refugee emergencies as compared with "stabe" refugee situations. The probem of refugees and dispaced persons has escaated to such an extent, and their compexity is such, that emergencies increasingy preoccupy UNHCR and other agencies. Prerequisites for rapid and effective emergency response are: 4 panning 4 avaiabiity of standby resources (financia, human and materia), 4 a mechanism for rapid decision making. A three constitute preparedness and are interdependent - one without the others wi not aow for effective response. Whie there is sti scope for enhancement, the standby resource arrangements of UNHCR and a number of UN and non-governmenta agencies have improved consideraby since the Guf Crisis in Annex A contains a summary of the standby resources deveoped by UNHCR. More detai on these resources can be found in the pubication "Cataogue of Emergency Response Resources" avaiabe for the Emergency Preparedness and Response Section (EPRS) in Geneva. This capacity to respond can often ie ide unti the decision is made to depoy. Poitica, financia, ogistica, security and bureaucratic constraints are amongst those which can deay depoyment of standby resources. An effective mechanism to address these issues is important but is beyond the scope of these Guideines. These Guideines concentrate on the first of the above prerequisites. Panning for contingencies affects the other two prerequisites since it heps identify the standby arrangements that may be required and aso assists rapid decision making, as it ensures the eary avaiabiity of reiabe information for poicy makers. Contingency Panning - A Definition

3 The component parts of this definition wi be expained in detai in these Guideines. "A forward panning process, in a state of uncertainty, in which scenarios and objectives are agreed, manageria and technica actions defined, and potentia response systems put in pace in order to prevent, or better respond to, an emergency or critica situation." For Which Contingencies do we pan? 4 new infux or sudden increase in refugee popuation 4 refouement or expusion 4 attack on a refugee camp 4 vioence within a camp or settement 4 spontaneous popuation movements within a country 4 spontaneous or organised vountary repatriation 4 camp reocation or new camp creation 4 sudden shortages of funding, food or other commodities 4 outbreak of an epidemic or serious heath probem 4 natura disaster affecting a refugee settement 4 staff evacuation, threat to staff security, attack on agency premises The answer is, for any possibe critica event. The most common in UNHCR is a new infux or sudden increase in a refugee popuation. There are many other contingencies for which one can pan. The way one approaches the panning process, the peope invoved and the content of the pan wi naturay vary according to the type of critica event. These Guideines concentrate on the refugee infux scenario, and it is up to the panner to adapt the process, if variation is required. The ist to the right is not exhaustive, but demonstrates the wide range of critica events and emergencies for which one can pan. In some cases, one may need to pan separatey for more than one event occurring in one country or region. When shoud Contingency Panning begin? A panning begins with a situation assessment and contingency panning is no exception. In most cases fied workers wi know simpy from experience when it wi be prudent to pan. One can, as is often said, "fee it in ones fingers". It need not be a sophisticated science or computer mode which triggers the panning process. Basic risk assessment and inteigence gathering anaysis is normay adequate. This being said an understanding of eary warning theory is usefu. Eary warning is "a process of information gathering and poicy anaysis to aow the prediction of deveoping crises and action either to prevent them or contain their effects." The stages in eary warning anaysis are: observe è coate è anayse è disseminate è react This task of eary warning anaysis shoud not be the responsibiity of one person aone, since accuracy is consideraby enhanced through the assimiation of information, experiences and skis of the widest possibe range of sources. Amongst these are: 4 Refugees (eaders, vunerabe groups, od and new caseoads) 4 Poitica entities (centra & oca government, opposition groups) 4 Loca popuation 4 Journaists & newspapers 4 Academic institutions, scientists, schoars 4 Internationa bodies (UN, NGOs, dipomatic staff) 4 Loca NGOs and associations There must be some trigger to commence panning and the eary warning signs of a potentia critica event may be important in initiating the process. When are the signs such that one shoud pan for contingencies? Here, there is no hard and fast rue. Often it is simpy a question of intuition mixed with experience that prompts one to recognise the need. A number of attempts

4 have been made to "scientificay" determine when an infux or some other event requiring contingency panning is ikey, but a have their imitations. Neither extreme, the intuitive nor the scientific are adequate. The best approach to eary warning ies somewhere between. Nevertheess as a rue: "It is better to pan when it is not needed, than not to have panned when it was" It is we worth understanding the dynamics of Eary Warning. There are normay three prevaiing factors: Annex B provides a ist of each of these factors. They reate to fows of refugees, but are indicative of the numerous eements which may contribute to (and deay) a mass movement of persons. For other critica events, such as a natura disaster affecting a refugee camp, probabiity may be more scientificay determined, but the timing more uncertain. Some sort of ongoing eary warning anaysis shoud be an integra part of any contingency panning process. An Understanding of "Panning" Concepts is Important There is a certain ogic to the panning process. This ogic can appy equay to major tasks, such as panning a overa operation to reativey minor day to day activities. In essence panning comprises the foowing steps. Situation assessment î Objective setting î Impementation options î Feasibiity testing î Impementation î Monitoring & evauation î Adjust objectives... Panning is an ongoing activity. As can be noted from the sequence above, the panner is constanty monitoring progress and adjusting the objectives to take account of new reaities. Panning shoud take pace in both stabe and in exceptiona circumstances. In an emergency, panning takes on an enhanced importance, since one must minimise mistakes as we as move forward in a systematic and speedy manner. Panning is not simpy theory but a pre-requisite for action. The oft quoted comment,

5 "this is an emergency, we don't have time to pan" is i-conceived. This being said, the whoe point of contingency panning is to begin the panning before the emergency begins by mapping out objectives and strategies prior to the crisis stage. The steps in panning wi be examined in more detai in Section 2. Contingency Panning and Operations Panning There is not a great dea of difference between contingency and operations panning. Both are panning activities as described above where objectives are set and a strategy to achieve these objectives deineated. The major difference between the two, is that panning for contingencies is panning in a state of uncertainty. One must make assumptions and deveop scenarios upon which panning is based. In operations panning, one observes a tangibe situation and responds to it. There are two kinds of associations between contingency panning and operations panning: The continuum mode where contingency panning is a stage before operations panning. In this mode, the eary warning signs prompt contingency panning and, shoud the event for which one panned, actuay occur, the panning process simpy changes gear and becomes operations panning. The assumptions made in the contingency panning stage are confirmed or adjusted, and then the operations panning continues, taking account of a rea situation. Eary Warning ê Contingency Panning ê Operations Panning In many cases however, contingency panning takes pace in the midst of a (sometimes compex) operation. For exampe if one is panning for a renewed infux, a natura disaster affecting a camp or a sudden spontaneous repatriation, then contingency panning becomes one eement of operations panning. Here there are eements of certainty and uncertainty mixed - the reaities of the ongoing operation are we known but future deveopments for which one needs to be prepared are to be assumed.

6 As wi be seen in the foowing sections of these Guideines, the participants in the contingency and operations panning process (normay an inter-agency group) wi often be the same in composition. This aows for continuity and consistency. For exampe, in modeî it is an easy transition for a contingency panning group to adjust their modus operandi to operations panning. Contingency Panning and Needs & Resources Assessment Needs and resources assessment is an essentia ingredient in contingency panning, indeed a panning. In order to pan effectivey one requires to understand the prevaiing situation by assessing both needs and resources. On the basis of needs (or in the case of contingency panning anticipated needs), one can set objectives. An understanding of resources can hep in the deveopment of a strategy to reach the objectives. Needs and resources assessments are essentia prior to undertaking contingency panning. This does not mean one needs to aunch a major needs and resources assessment mission. It may be sufficient to incude in the panning process persons who are sufficienty famiiar with, and technicay competent, to contribute to the panning process. Once the panning begins, ongoing needs and resources assessments are required to take account of changing reaities. UNHCR has produced a Needs and Resources Assessment Manua which is avaiabe on request from UNHCR in Geneva and which can assist practitioners in undertaking such assessments. Contingency Panning and Training Some agencies are unfamiiar with the notion of contingency panning; many are we aware of its importance but approach it in different ways. The approach outined in these Guideines has been deveoped over time and through practica experience (and is generay the accepted approach of the United Nations agencies with which UNHCR most frequenty cooperates). UNHCR beieves that it is a successfu approach to the type of critica events with which it is faced. This does not mean it is the ony approach and indeed it may not be appropriate in some circumstances. There may be times therefore when UNHCR=s approach needs to be expained to participants in the process. Training (or more appropriatey expanation and carification) may therefore be a desirabe eement in the panning process. It is important that a participants understand the approach and are abe to proceed in unison. One shoud avoid a situation where a misunderstanding on the best way to proceed undermines or detracts from the contingency panning process itsef. Poitica sensitivity, cutura factors and different agency agendas may interfere with a common approach. These issues wi be deat with in Section 2. Just as the contingency panning process might have a training eement, emergency training activities in UNHCR and other UN organisations have a contingency panning eement. UNHCR runs an Emergency Management Training Programme (EMTP). It is a course for some 35 government, NGO, UNHCR and other UN agency participants hed over a 12 day period in three

7 separate regions each year. The Department of Humanitarian Affairs (DHA) has a contingency panning eement in the Disaster Management Training Programme (DMTP) for which they are responsibe. DHA is aso the secretariat for the Compex Emergency Training Initiative (CETI), an inter-agency grouping which has stressed the importance of contingency panning training. These guideines are consistent with the approach taken in both the EMTP and DMTP training. UNHCR is producing a series of Emergency Management training modues which incude such subjects as eary warning, needs & resources assessment, operations panning as we as contingency panning. These coud be used as part of the contingency panning process to sensitise panners to the approach and ensure that a participants are taking a consistent approach. What Contingency Panning is not - frequent misconceptions As a trainer, initiator or faciitator of contingency panning, you may often hear the foowing statements. As wi be noted ater in the Guideines, these generay resut from a misunderstanding of what contingency panning invoves. 7 Contingency panning costs money - financia resources are required in advance before panning can begin 7 Externa expertise is needed - the experts must come on mission to pan. There is no oca expertise 7 It takes one major effort and once the pan is ready, itte more needs to be done - one is now prepared 7 Contingency panning is not an integra part of our work, its an exceptiona activity 7 Contingency panning is sensitive, confidentia and threatening, so shoud not be attempted or at east shoud be done in secret 7 Contingency panning creates a pu factor which encourages dispacement which may have otherwise not occurred 7 It is product oriented - stockpies, pans, budgets are an end in themseves not a means to a successfu response The Leves of Preparedness Within the ream of contingency panning, there are various eves of preparedness. There may be a goba or genera preparedness, a country or operation specific preparedness and thirdy a heightened aert. In the UNHCR context this can be expressed in the foowing manner: Œ GENERAL GLOBAL PREPAREDNESS The state of genera preparedness in which standby arrangements are in pace, staff trained, materias stockpied and access to emergency funding assured. These arrangements are not necessariy country specific. UNHCR has various goba preparedness measures in pace as described in Annex A. ENHANCED COUNTRY SPECIFIC PREPAREDNESS Ž HEIGHTENED ALERT The state in which a particuar country or region can be considered to be emergency prone or vunerabe to the effects of emergencies. Accordingy, contingency panning shoud be undertaken. Whie this stage appies to many countries, at this stage, the resource investment (particuary financia) wi be imited. The state in which the panners concude that the situation has reached a critica stage and that action requiring an added investment in resources (stockpiing, training, fund-raising, staff standby etc.) is warranted. Whie it is difficut to quantify the eve of risk at each stage, it might be usefu to further concretise

8 each eve, describing eve as one in which there is at east a 1 in 2 chance of a major critica event occurring and eve Ž as one where it had reached a 1 in 2 chance. These Guideines essentiay expain the steps from the beginning of eve, and ead the reader through both eves and Ž. These stages are important to keep in mind since they wi be very practica toos in the panning process itsef. Certain preparedness tasks require few resources and are reativey easy to impement and can thus be done in stage, whie others woud ony be poiticay and financiay viabe after the heightened aert. Thus when deciding on the timing of preparedness actions one can think in terms of these "stages" or "eves" rather than in terms of "in six weeks" or "by year end" etc. Section 2 - The Process The Process - A Definition "A group of peope or organisations, working together on an ongoing basis to identify shared objectives and define respective actions." Contingency panning is primariy a process. It is not a one time event, even ess a "Pan". The panning process may we have a starting point but usuay no end. One traditiona approach to contingency panning has been to "fy in" one (or more) "experts" to draw up a pan for a potentia critica event or emergency. This has its dangers: 4 It is too much to expect one (or even severa) person(s) to effectivey cover a sectors and issues. The technica, poicy, oca and practica concerns are too diverse and compex 4 The existence of a pan "prepared by the experts" can ead to compacency and fase security 4 There is no ownership by those not invoved. That shoud rest with the organisations and persons who shoud update it and by whom it wi eventuay be impemented 4 It wi quicky become out of date if it reies on externa inputs a the time These pitfas can ceary be avoided by panning coectivey, marshaing the widest range of oca skis and compementing these by externa inputs. By reviewing and updating panning measures on a reguar basis, one ensures that the preparedness measures in pace are appropriate, adequate and compementary. Experience has ceary shown, that reiance on the Pan aone eads to a fase sense of confidence, since the Pan quicky becomes out of date. Many Pans read we but when one scratches the surface one reaises that practica response measures are merey proposas rather than reaity. The Pan without the process thus tends to be: "A security banket with a short shef ife" How is the Process Manifest As the definition above impies, contingency panning is best achieved through a cooperative and coordinated effort wherein a reevant agencies shoud work together, in the same direction (shared objectives) and over a period of time. Meeting once and producing a Pan is usuay insufficient and the product usuay inadequate. The process revoves around reguar meetings. Inputs into these meetings incude expertise, fied visits, agency poicy etc., whie outputs incude Pans, reports, budgets, actions, stockpies etc..

9 Before proceeding one shoud take stock of the state of contingency panning in your country. First decide on the kind of emergencies or critica events for which panning may be desirabe. (See the box on page 6). Then assess the state and context of panning in your country. It is ikey that you find yoursef in one of the situations beow: Contingency Panning is aready taking pace through Interagency meetings If you find yoursef in this position, much of what is written in these guideines wi be famiiar to you. There may naturay be room for improvement and these guideines may provide you with some ideas. You may ask yoursef, whether the meetings are hed frequenty enough, sufficienty focussed on the task, are the participating agencies the most reevant, is the product adequate in ight of the emergency for which one is panning, shoud one be panning for other emergencies? Have you shared your Pans with headquarters? Contingency Panning is aready taking pace but not in the context of Interagency meetings You may aready have a contingency pan. Is it up to date? Who prepared it? Was it prepared in the context of an inter-agency forum? Does the Pan incude practica measures or is it a ist of intentions? These are some of the questions you shoud ask yoursef. It may we be that the Pan and the panning needs to be revitaised. If the pan has not been deveoped in consutation with other agencies, then it may be appropriate to take a new approach on the basis of these guideines. In essence there is aways a time to evauate the effectiveness of one=s panning and take remedia action if the panning is not considered effective. No Contingency Panning is taking pace but there are inter-agency meetings

10 Where inter-agency meetings aready exist it is worthwhie deciding whether the composition of the group, the working methods and the meeting frequency can be adapted or extended to add contingency panning onto the agenda. One shoud think carefuy about this though, since the existing system may smother new initiatives in contingency panning and it may be worthwhie starting afresh with a new structure and procedures. If one chooses to use the same structure, there shoud ideay be a distinction between the processes. It may not be an adequate enough approach to simpy add contingency panning onto the agenda as a new item. If one does, it wi ose its importance and the concerted energy needed for it to be effective wi be ost. On the other hand, with skifu panning, one coud use existing interagency meetings as a sounding board and eventuay a spring board for new contingency panning initiatives. The endorsement of the inter-agency group woud thus be most vauabe. No Contingency Panning is taking pace and there are no inter-agency meetings In some cases there is no existing interagency meeting structure yet there is considered to be a patent need for some form of contingency panning. Indeed we have seen in some countries that the commencement of contingency panning through the inter-agency process has brought agencies together for the first time, abeit with a specific agenda. The efficacy of the forum has then stimuated further inter-agency consutation in other areas. The contingency panning has in fact been the ignition for broader consutation to the benefit of the country operation as a whoe. Let us assume that a new meeting structure is desirabe. The first meeting sets the tone for the way in which the process wi proceed. It does not mean that there wi not be an opportunity to change the composition, the procedures and the frequency of the meetings at a ater date, but it is we worth giving carefu thought to aying a soid foundation. The Round-Tabe Meetings come in different forms. We have deiberatey referred to contingency panning sessions as "Round-Tabes". This is to stress the importance of participation by a agencies. Each has something usefu to contribute to the panning. The views of one agency may differ from others, but this wi often be to the advantage of the panning process since it provides a usefu forum for a assumptions to be questioned and refined. The end product is thus more reaistic. Whie UNHCR may faciitate the round-tabe, the equa importance of each agency must be respected. r Suitabe meeting room r Fip chart and paper & pens r Overhead projector & screen r Tent cards for names r Refreshments r Video payer r Eectrica outets & wiring r Photocopier, computer printer r Interpreter if required The frequency of the meetings depends very much on the circumstances. In a stabe situation, meeting every 3 months is probaby the norm. If the eary warning signs are such that one is approaching or has entered the "aert" stage, then weeky meetings or monthy meetings wi be necessary to ensure enhanced preparedness. Whatever the situation, there shoud be a readiness to meet at very short notice if it is demanded by the situation. The Round-tabe wi require an optimum environment and props for it to be effective. Some guidance can be found in the UNHCR pubication "Learning to Train - An Introduction to Training Skis" and a checkist of the essentia eements is shown on the right. This ist assumes that there is a training or presentationa eement in the round-tabe, possiby a presentation on the current situation in the country of origin or on pans for refugee sites. For the inaugura round-tabe, for which a possibe agenda is discussed beow, many of these resources wi be required. The usefuness of the fipchart shoud not be underestimated since it provides a visua way for the faciitator or rapporteur

11 to take notes and wi generate, prompt and stimuate new ideas from the participants. The Agenda - the Inaugura Round-Tabe In this part we wi go into some detai of the agenda and content of the inaugura meeting in the contingency panning process. This is simpy presented as a guide and some adaptation wi aways be required. Even if the process has begun in your country, the detais beow may stimuate some new ideas and approaches to revitaise the process. + Step 1 The Preparation Decide on participants, venue, faciitator, agenda and send out the invitations preferaby with the agenda. One coud consider whether it is worthwhie incuding an experienced faciitator from your duty station or Headquarters. (Refer to Section 3 on The Partners for more guidance). + Step 2 The Introduction The faciitator can open the session and invite some brief opening remarks from the UNHCR Representative, UNDP Resident Representative and/or the most senior government officia. Try to keep the formaity to a minimum. The faciitator can expain the objectives of the round tabe, and the agenda. It woud then be appropriate to ask participants to introduce themseves and comment, if they wish on the agenda and objectives. Contingency Panning Round Tabe - Ruritania 6-7 June To introduce participants to the principes of Emergency panning and management. 2. To discuss the concepts of Emergency Preparedness and Response 3. To consider the concepts of Eary Warning, Needs & Resources Assessment, Contingency Panning and Operations Panning 4. To begin the Contingency Panning process, cuminating in the preparation of a Contingency Pan for possibe refugee infux 5. To provide an opportunity for participants to famiiarise themseves with each other and their respective agencies' capacities and needs 6. To consider the means and arrangements for future ongoing co-operation in reation to preparedness and contingency panning. Agenda

12 Part One 1. Purpose of Round Tabe 2. Participant Introductions and expectations 3. An introduction to Emergency Management - Preparedness and Response 4. Eary Warning for refugee fows 5. An introduction to Panning, Needs Assessment & Operations Panning 6. Contingency Panning - the process Part Two 7. Identifying Scenarios 8. Poicy Carifications/Strategic Objectives 9. Sector Objectives 10. Sector Activities - what, who, by when 11. The way forward Two fu days are required for this agenda. The first morning for a of part one, incuding a practica eary warning exercise, can be foowed in the afternoon by identifying the scenarios and agreeing on the poicy objectives. That wi give the faciitator the opportunity to type up these two eements and present them to the participants the next morning to seek their agreement and in part to recap on the previous day's discussion. The remainder of the second day can be devoted to proceeding in as much detai as possibe through each of the sectors, eaving a short time before cosing, deciding on the next steps and the date of the next meeting. + Step 3 The Training It wi be noted from the objectives and the agenda that there is a training eement incuded. The intention is not to say, "this is how it shoud be done" but "this is how UNHCR finds it usefu to approach contingency panning". Guidance on content and overhead transparencies for this training are avaiabe from EPRS in Geneva. Some are attached as Annex F to these Guideines. Eary Warning Worksheet Country Infux From List the factors in order of importance Factors Factors Prompting Departure

13 Intervening Factors (reasons for postponed fight) Triggering Events There are some activities within the "training" segment which wi be usefu for subsequent discussions. Under agenda item 3 the faciitator coud expain the goba emergency preparedness arrangements of UNHCR (as described in Annex A). Then ask each of the agencies present to describe their preparedness arrangements. A second exercise coud be to turn the theory of Eary warning into a practica exercise for your specific anticipated emergency. Give the participants a work-sheet ike the one to the right and take some minutes for each person to identify 3 or more factors in each section. The indicators are isted in Annex B and this wi hep participants in undertaking the exercise. Then, in penary, take say 3 indicators for each box from each participant, to arrive at an indicative pattern. Use the fip chart to record the resuts. It shoud be mentioned that this is not a scientific exercise, but is intended simpy to get a better appreciation of how eary warning factors interact. It does, nevertheess, aready introduce the participants to the actua country issues at this eary stage in the process. + Step 4 Scenario Identification Based on their own experience, eary warning indicators, reiabe commentary etc. the emergency panners shoud deveop possibe or ikey scenario(s). This activity is the most intuitive, yet one of the most important, since this ays the basis for a further panning. In estabishing scenarios one wi inevitaby make assumptions, and whie these wi be based on the experiences and knowedge of a range of persons, there wi inevitaby be an eement of unpredictabiity. "The ony predictabe thing about a scenario is that it wi be wrong" This may be true, but it doesn't reay matter that much. It is important to sette for one or more scenarios for panning purposes and if the infux is smaer, one knows one is we prepared, and if it is greater, one immediatey reaises the importance of taking urgent corrective action. The scenario is in effect a kind of benchmark. For scenario conceptuaisation: 4 consider a possibiities (be imaginative) 4 sette for a imited number of options ony (3-4 options are the norm) otherwise the panning process wi be too compicated 4 use the concept of "worst case/best case"

14 4 consider probabiity 4 decide whether to pan for muti-scenario, worst case or another option If time is avaiabe divide into two or more groups of some 6-8 persons and task each group to arrive at a ikey scenario(s). Then in penary compare and then synthesise these into one or more agreed scenarios. Aternativey immediatey begin the discussion (brainstorming) process in penary using the fip chart to record the concusions. Remember to keep scenarios to a minimum since one wi need to undertake detaied panning for a scenarios. If there are regiona variations with different scenarios for each region, the scenario setting exercise wi need to be organised to take account of these variations. t Entry points t Tota panning figure t Arriva rate t Reception & anticipated movements t Settement arrangements t Emergency response trigger t Expected refugee profie In order to structure the scenario discussions, some headings wi be desirabe. These wi of course differ depending on the type of event for which one is panning, but for a refugee infux the headings coud be those shown in the box. Annex D gives an exampe of an infux scenario. Most eements are sef expanatory, except for the "emergency response trigger" which perhaps deserves some expanation. There are various eves of preparedness which wi hep the panning process (goba preparedness, country preparedness and aert). The next stage is the actua response. It is we worthwhie to identify, in advance, the indicators which manifest this stage so that time is not ost discussing "when" the emergency actuay begins. Some ca this the decaration of the emergency. The panners need to know when to mobiise the response arrangements. In some cases it wi be quite obvious but very often there is a temptation to say "ets wait and see if the situation deteriorates further" rather than acting immediatey. There is a danger if the response threshod keeps moving, to a more extreme eve than is prudent. See Annex D for an exampe of a response trigger. + Step 5 Poicy/strategic objective Identification The panners need to have some vision of the direction of the overa operation. To the extent possibe this shoud be a shared vision. It is not unusua for the various partners to hod different poicy approaches to a particuar probem. If these can not be reconcied at east they shoud be known and understood by a parties. Nevertheess an effort shoud be made to agree on some overa principes through estabishing overa objectives for the response operation. A activities undertaken in the pan wi need to be consistent with these overa objectives. The overa objectives can simpy be accompished by brainstorming in penary. In order to divert any open confictua debate some effort may be required prior to the meeting to find a formua acceptabe to a parties. This wi not normay be necessary though, since as can be seen from the exampe in Annex D, the poicy objectives are normay of a genera nature and noncontroversia. + Step 6 Sector Objective and Activity Identification This is the most substantive and detaied part of the meeting. For each sector the participants shoud agree, in as much detai as time wi permit, on the: 4 sector objectives incuding standards 4 activities/tasks 4 who is responsibe for impementing the task 4 time frame for impementation

15 The simpest, as we as the most participatory, way to approach this task is to proceed sector by sector using the fip chart to record the views of the participants. It is a good idea to distribute the sector considerations (Annex C) before hand. Certain agencies wi ceary have a more prominent roe in some sectors (UNHCR for Protection, WFP for food and Logistics, etc.) and it may be worthwhie expaining to these agencies what wi be expected of them in the Round-tabe so that they have some time to prepare their inputs in advance. Leave the "management" sector for the end since it fas into pace more easiy once one knows what one needs to manage and coordinate. Stress that this is not a "pedging conference" and that it is not necessary for agencies to commit themseves to a task if they are unabe to at that stage. Their roe at this stage coud simpy be indicative. Having recorded the inputs on the fip chart, the rapporteur can write up the Pan, adding some background information for each. (See Annex D for an exampe.) On the next page there is an indication of the types of raw data which wi be recorded on the fip chart for ater editing into the Pan. + Step 7 The Way Forward Agree with the participants that this is simpy the beginning of the process. The notes taken during the meeting wi be compied into the Pan which wi be shared with them for amendment and endorsement. Agree on the timing of the next meeting and the agenda for that meeting. Normay the agenda of that and subsequent meetings coud have 3 standard items: 1. Review the eary warning indicators 2. Report on actions taken by agencies in the interim 3. Update the Pan by making amendments and additions The foow up process wi need to be activey managed by UNHCR (or whichever ead agency is designated).ongoing iaison is required with agencies between meetings, these meetings need to be convened as agreed and agencies ready to pay their agreed part. The roe of the Afaciitator@ is crucia here, a roe which is described further in Section 3. Process Input If reguar meetings (in penary, and if necessary, in technica or regiona sub groups) are the hub of the process, then input (see diagram on page 14) is required to ensure its effectiveness. This incudes: 4 Technica expertise and advice 4 Resuts from fied visits 4 Information from the countries of origin 4 Resuts of biatera meetings with agencies outside the inter-agency meetings 4 Poicy statements of various agencies It is important to gather technica inputs which are timey and appropriate. "Timey" in the sense that they come in the right sequence in the process. For exampe, there is itte point undertaking site panning surveys before the settement ocations are agreed by a parties. Often poitica and strategic decisions are required prior to technica inputs. Yet, care must be taken to ensure that there are sufficient technica inputs to make reasoned poitica and strategic decisions. AAppropriate@ in the sense that the site panner must be experienced in panning refugee settements. The ongoing nature of the process approach aows for this injection of expertise at the right time and gives greater scope to the right technica experts being avaiabe, since the window of opportunity for their missions is arger. Process Output Output or products from the process are the physica manifestations of the panning process. These incude: 4 The Pan 4 Projects and Budgets 4 Standby arrangements such as stockpies 4 Training of potentia impementing partners

16 4 Preparedness checkists These are constanty reviewed, vaidated and amended as the process continues. Constraints and Diemmas "That's a very nice in theory, but it won't work here. You don't understand, our situation is different." Guideines are just that, a guide. They are based on best practice often under favourabe conditions. There wi be constraints and reasons why they can not be appied "according to the book." Each scenario and country situation is different, hence the need for adaptation, perseverance, dipomacy and imagination. Some of the obvious constraints and diemmas are: The constraint Poitica sensitivity There is often a concern by the government and others that undertaking contingency panning wi convey the wrong messages and may even be a pu factor. There may be strong pressure to undertake contingency panning in secret. The Government may not participate. Indeed, you may fee that panning may provide an opportunity for some actors to overreact and pan for excusion or more restrictive measures than woud have been the case in a sudden infux. A these considerations are vaid, and this is probaby the most difficut constraint to overcome. Cutura considerations The "process" described in these Guideines is characterised by participation and horizonta agency interaction. In many countries the participatory, non hierarchica approach to panning is not a famiiar way of working. Often Pans are prepared by managers and handed down for impementation, technica staff do not necessariy pan with poicy makers, resources are centray managed etc. A these factors may not fit comfortaby with Possibe ways dea with it 1. Invoke internationa ega instruments (1951 Convention, OAU Convention, Universa Decaration of Human Rights etc.) which specify obigations. 2. Stress that contingency panning is not unique to that country but a "norma" and "expected" activity for UNHCR and the Agencies. 3. Indicate that refugees do not move from their homes without carefu consideration and considerabe pressure. Thus contingency panning in itsef wi not be a pu factor. 4. Deveop an understanding of the ines of authority and possibe probems within the hierarchy in gaining acceptance for contingency panning. Ensure approaches are made at the correct and most effective eve. 5. If the Government is hesitant in participating accept it and with their permission undertake the panning. Keep them informed and eventuay when they see that it is non threatening draw them in. There may be indirect ways they can be invoved such as during training sessions on emergency management. 6. Secrecy shoud be avoided - it has a tendency to backfire and be counter-productive. Confidentiaity is essentia however. There may be a few instances where media coverage is considered part of the strategy of the Pan, but these instances are rare. 1. Consider a separate meeting with "senior managers" to expain the process and seek their endorsement (see p 26). Give the senior officias a roe which conveys their status. 2. At the "Round Tabe", expain the ground rues so that everybody understands the method of working from the outset. In doing, so seek consensus on the agenda and the process. 3. Find the "cuturay appropriate" approach and aim for a midde way between your approach and that of the participants. 4. Where this is a new activity for the oca counterparts, there may be vaue in expaining that this is not new for UNHCR, which is drawing on experience and best practice

17 the inter-agency participatory process. Scenario compexity In many countries it may be difficut to identify one or two scenarios upon which to base the panning. The existence of numerous poitica, racia, triba groups or the varying geographic ocations, each of which manifests different panning probems, wi compicate the process. Even without this eve of compexity, finding agreement on a scenario may be iusive. Lack of Interest Motivating agencies to participate may be a chaenge. Some may not recognise the potentia probem, see the need for the panning, or think that the consutative process is necessary. They may fee satisfied with their own pan if they have one. Much of course depends on attitudes and personaities of the staff. Poicy Variations & Competing Mandates Governments, UN Agencies and NGOs have different mandates, and amongst Government departments, UN agencies and NGOs there are often different mandates, stances and approaches. "Hidden" agendas are not unusua. These must be recognised from the outset of the diaogue. These varying viewpoints wi often compicate the consutative process. Operationa Compexity Ongoing programmes wi often confuse the carity and neatness of a contingency panning process. The preoccupation with the mounting numerous tasks of the current operation may not aow time or energy to be devoted to new tasks. Agencies have expectations of the roe they may pay in panned operations because that is the roe that they currenty pay. There may esewhere, thus giving the methodoogy an endorsement. 1. Where there are different Geographic areas, separate panning processes may be desirabe. This may be accompished through different sub groups comprising regiona or district agency representatives panning separatey whie the separate parts are brought together at centra eve in one Pan with consistent eements. The separate pans wi require coordination through the participation in the regiona meetings of at east one representative from the centra panning committee. 2. Do not be tempted into seecting too many scenarios. As ong as they are representative of a possibiities, the size or intensity of a probem can be adjusted, since for panning purposes the scenario simpy needs to be indicative. 1. The beauty of an ongoing process is that the composition of the panning partners can change over time. Begin with those prepared to participate and keep others informed. They may join the process as they note its efficacy. 2. Contact Headquarters to iaise with the Headquarters of the agency which is not participating to encourage invovement and asking that the panning process be endorsed at that eve. 3. Do not take any initiatives which may ead to entrenched views which precude future invovement. 1. Dipomacy, honesty and openness are essentia in the process. If agencies are concerned with "image", experience has shown that the net benefits of this kind of coective endeavour outweigh to individua gain. 2. Focus discussions at the appropriate eve. Operationa issues are best discussed at operationa eves and may faciitate poicy-eve decisions where feedback and advice from the technicians is positive. 3. Dipomatic missions of donor governments wi be an important ay here. These governments are very concerned about inter-agency cooperation and are enthusiastic about coordination mechanisms such as those described in these Guideines. 1. One must recognise the ongoing operation and not totay ignore the existing coordination and management structures. It may be wise to begin with an anaysis of a these structures and procedures and identify those which wi contribute positivey to the process of contingency panning and those which do not. Maximise the use of the former and minimise the use of the atter. 2. Estabish Guideines or a code of conduct for the panned operation at the eariest possibe stage. This wi ensure that a participating agencies in the process accept the objectives, agree with the process and have acceptabe standards of operation. These Guideines wi have a certain

18 be reasons why, for the sake of an force if deveoped an sanctioned by an inter-agency group. effective operation there shoud be a change. Separating the contingency panning process from the current operation, stepping back and taking a fresh cean ook at the probem is not easy. Section 3 - The Partners This section assumes that the process wi invove a "group". The reasons for this have been expained earier, but it may be worth reiterating the od adages that "many heads are better than one" and that "many hands make ight work". It is not feasibe for one "expert" to prepare the pan. To be effective one shoud marsha a the possibe and avaiabe expertise so that synergy (the sum of the whoe is greater than its individua parts) resuts. There are other direct benefits, of course, such as ownership by those who must impement the pan; and indirect benefits, such as contingency panning providing an opportunity for interagency interaction, which in itsef is vauabe. This being said, the seection and management of the partners shoud not be random. The participants in the process are the key to effectiveness of the contingency panning. The seection of the organisations represented, and the individuas representing these organisations, is important. Before isting the possibe participants, there are a few issues which need to be addressed and which require consideration when arranging participation in the process. Optimum group size The size of the group wi in the first instance depend on the critica event for which one is panning. Some very specific situations, such as staff or premises security, may be better handed by a sma speciaist group, whereas a major refugee infux woud require broad representation. Normay a meeting of 20 persons woud be a maximum for the meeting to be run in a fuy participatory manner with the eve of informaity that is essentia. Larger meetings tend to be cumbersome and can ead to situations where there are set statements rather than interactive diaogue. On the other hand fewer than 10 persons does not aow for a sufficient range of views. It may be necessary to convene two eves of meetings, the arger forma meeting where statements of principe and support can be made and the second eve working group meeting which deveops the detai. Seection of participants The initia seection of participating agencies requires carefu thought. Keeping in mind the objective of the panning and the comments above on size, it is often better to be incusive than excusive. Since the group wi meet periodicay as part of the process, the composition need not be fixed for a future meetings. There must be scope for agencies to be added and for others to drop out according to the possibe contribution to the process and benefit to the agency. By erring on the side of incusion, the utiity of each agency to the process can be determined. Those which reaise that they have imited contribution vaue may sometimes decide to excude themseves from subsequent meetings. Naturay the seection of agencies wi depend on the nature of the critica incident for which one is panning. Some wi be essentia since they may be expected to have an operationa or important roe in the impementation stage whie some may ony be important in certain parts of the process. Having determined which agencies to incude, one needs to give some thought to the eve of representation from each agency. In some cases there is no choice since the agency country representation may be sma. It is of course up to the agencies to decide who from their office shoud attend. It is incumbent on the organisers to ceary expain the nature of the meeting so that the decision is based on an understanding of need. The invitation shoud therefore be as

19 expicit as possibe. In many cases agencies wi prefer to be represented, at east at the eary stages, by a senior staff member, maybe the country representative. This person coud be compemented by a speciaist. Thus 2 representatives from one reevant agency may be desirabe. Once the process becomes more practica and routine the poicy maker may withdraw. From time to time there may be considerabe vaue in seeking agency headquarters participation. The country desk officer from UNHCR in Geneva, a food and ogistics officer from WFP in Rome, various speciaists from the Programme and Technica Support Section at UNHCR in Geneva, a water speciaist from OXFAM in Engand etc., may be a vauabe catayst to moving forward in a the panning process or injecting some technica expertise. Such persons may aso be avaiabe at a nearby office in the region. In order to capitaise on the presence of these peope adequate advance notice wi be required. Loca technica expertise shoud not be overooked. Externa input into the country panning process is not aways possibe to arrange and at best wi be sporadic, thus the eary integration of oca expertise, from government or oca NGOs, is highy desirabe. Language abiities of the participants are an important consideration. Since the meetings are highy participatory, working with interpreters is cumbersome, disruptive and can ead to misunderstanding. At times this may not be avoided, but every effort shoud be made to ensure that a participants and the faciitator share a common anguage. The Foca Point, the Faciitator, and the Rapporteur These three functions are important to the success of the process and effective contingency panning. It may we be that the same person fufis a three functions or they may be spit between two or three persons. The choice depends on staff avaiabiity and skis, since each requires different competencies. Roe Function Competencies Foca Point Faciitator A process is dynamic and does not drive itsef. The foca point provides the impetus, the momentum to the process. The foca point needs to: 4 monitor the eary warning signs and ca meetings when necessary, be conscious of the composition of the group and initiate change, identify gaps in the pan and in genera maintain a watching brief over the process; 4 coordinate and share information so that a parties in the process are constanty aware of the status of the panning, have up to date copies of the pan and fee truy part of the process; 4 ca and arrange meetings and identify the faciitator (if the foca point does not assume that roe). Meetings must be effectivey managed, with an agenda and adequate meeting discipine. Minutes may not be required if a concusions are recorded in a the revised Contingency Pan. It is the faciitators roe to ensure there is a detaied agenda, that it is shared with participants in advance of the meeting and to guide the faciitator. To faciitate meetings is an art which goes beyond chairmanship. It may we be that the meetings become routine and that a competent chair person can perform that task. Nevertheess, for the first Organisationa skis, understanding of the contingency panning approach, positive pubic reations stye, appreciation of how to manage meetings. Skis at faciitation and ideay a famiiarity and expertise with refugee issues, the oca situation,

20 Rapporteur meeting there may be a vaue in arranging for a management of faciitator. Apart from ensuring that the process begins emergencies and on the correct footing, it has the added advantage of contingency panning. reeasing others to activey participate in the panning, a task which is difficut for a non-independent faciitator. Subsequenty, the ogica chairperson may we be the head of one of the organisations or the chair may rotate to foster a truy cooperative arrangement or in some cases there may be a cochair (the government and the UN). For further information on hoding effective meetings refer to the UNHCR training modue "Chairing and Faciitating Meetings". This roe invoves assimiating the comments in the meetings, receiving written inputs from the partners and writing the pan. Ideay the same person shoud update the pan to ensure some continuity. If the pan refects the discussion effectivey, separate minutes of each meeting (except to note the date of the meeting, who participated and other practica information not refected in the pan) are not particuary necessary. Drafting skis, computer iteracy desirabe Continuity and Permanency The pan, the participants and the foca point provide continuity to the process. There is a danger, particuary given constant staff changes in many organisations, that the process wi cease through negect. Of course, if the threat of a critica event or emergency diminishes there is no point sustaining the process, but that must be a conscious decision, not simpy a resut of defaut. In the seection of the participants it is worthwhie ensuring the participation of persons who wi be present for some time. They shoud ensure handover to others if there is change in an organisation and if necessary arrange for two representatives from one organisation if one is due for rotation. Checkist for Agency Participation The foowing checkist is intended as a guide to the contingency panner when compiing the ist of participants in the panning process. It is not exhaustive and each situation requires a different mix of participants. Use the ist to consider each agency and their potentia roe. In doing so it is important to ensure coverage of the foowing: 4 Are a technica sectors covered by those agencies represented? 4 Are there sufficient oca organisations with country nationas famiiar with oca conditions as we as poitica reaities? 4 Are there agencies/persons famiiar with the situation in the country of origin and eary warning indicators? 4 Are a mandated agencies represented? r UNHCR Participation wi normay invove the Representative, at east at the eary stages of the process. UNHCR wi aso provide the faciitator. To aunch the process this may be an emergency officer from UNHCR in Geneva, but this is not essentia (these guideines are intended to enabe the

21 process to be driven ocay). In addition the "internationa protection" expertise must be expected to come from UNHCR. UNHCR Geneva (or a neighbouring office) may have some other technica expertise to offer at the most appropriate stage in the process. UNHCR may aso provide a separate rapporteur. One shoud not overoad meetings with unnecessary UNHCR representation. r Government The invovement of the Government is essentia. It is appreciated that contingency panning may be seen as poiticay sensitive. UNHCR fees that contingency panning not ony makes good sense, but the mystique and sensitivity can be diminished if it is seen as a "norma" rather than "exceptiona activity." It may be further reduced if the process is confidentia, certainy from the media and the pubic at arge. It shoud never be secret, for that woud enhance the mystique. Even if the Government does not activey participate, they shoud be kept informed of the process and of the outcome. It is UNHCR's responsibiity to ensure that this is the case. The process may start without Government participation and if the authorities are kept informed they may join in the process at some ater date. The "government" is of course not simpy one entity and may need to be represented by various departments (refugees, interna affairs, security & defence, transport & communications and pubic works) and aso at different eves (centra, provincia and oca). It may we be that the oca government is introduced to the process at regiona meetings which mirror the meetings at the centra eve. r Word Food Programme (WFP) This is often one of the most important partners of UNHCR in the process. Within the terms of the Memorandum of Understanding between UNHCR and WFP (1996), there is a cause which states that "UNHCR and WFP wi undertake contingency panning and maintain contingency pans in countries where it is deemed appropriate and warranted by the ikeihood of deveopments that coud entai major operations within the scope of the MOU. Each wi seek to ensure joint participation - with others concerned - in the process, and share reevant contingency pans where they have not been abe to be deveoped jointy." Within the terms of the MOU, WFP is responsibe for resourcing and deivery of basic food to refugee and returnee operations of over 5,000 beneficiaries as we as to internay dispaced persons. Thus WFP=s invovement and expertise in food resourcing, ogistics, and storage is essentia to the panning process and they are ikey to be abe to provide important information on these sectors for the panning process. WFP aso has an interest in registration, site panning and distribution in order to effectivey fufi their mandate. Normay WFP wi have a country representation, but shoud this not be the case it is important to contact UNHCR Geneva (EPRS or the respective Desk) for them to ascertain whether WFP can send a staff member from a nearby country or indeed from Rome. There are 2 sections which concern themseves with contingency panning in WFP Rome - the Augmented Logistics Intervention Team for Emergencies (ALITE) and the Emergency Support Service. r Department of Humanitarian Affairs (DHA) Estabished in 1991, DHA is charged with the coordination of humanitarian assistance within the UN System and in particuar with natura disasters and "compex" emergencies. The atter is characterised by a breakdown of authority in a country or region, resuting in interna or externa confict and where the responsibiity for addressing this goes beyond the mandate of a singe agency. With Headquarters in New York, as we as an important office in Geneva, UNHCR has frequent deaings with the Reief Coordination Branch (which incudes the Miitary and Civi Defence Unit) and the Compex Emergency Division (which has a Rapid Response Unit). In some countries DHA is directy represented by a UN Humanitarian Coordinator, whie in others the UNDP Resident Representative is aso the DHA representative. Their invovement is important, so that the refugee-reated panning is consistent with other humanitarian panning that is taking pace. DHA has aso supported the activities of Disaster Management Teams (DMT) in many countries. These are primariy aimed at responding to natura disasters and "compex

22 emergencies", but depending on the nature of this body, it coud form the nuceus of a refugee contingency panning group. United Nations Disaster Assessment and Coordination Teams (UNDAC) have aso been estabished by DHA to assist the Reief Coordinator and the DMT in rapid assessments of (primariy) natura disasters. A refugee reated contingency panning shoud take the DMT and natura disaster preparedness into account. DHA, in coordination with UNHCR, WFP and other agencies, is deveoping contingency panning guideines which dea with preparing for "compex" emergencies. It is important to note that the DHA Guideines wi be consistent in approach to the UNHCR Guideines. r United Nations Chidren's Fund (UNICEF) UNICEF is often an important partner to UNHCR. The Memorandum of Understanding between UNICEF and UNHCR (14 March 1996) states "Both UNHCR and UNICEF contribute to coordinated U.N. emergency panning, normay undertaken in fu cooperation with the nationa authorities. Within this framework, UNHCR wi invite UNICEF to participate in panning for possibe refugee infuxes." The speciaist fieds with which UNICEF is often associated within refugee assistance are seected heath activities incuding immunisation, infant feeding programmes, promotion of psychosocia we-being of chidren traumatised by vioence and confict, assistance for unaccompanied minors, basic education, water suppy and sanitation activities. In most countries UNICEF wi have representation which is primariy invoved in deveopment type activities and some adaptation may be required to prepare for emergency response. Indeed the MOU states that during contingency panning "UNICEF wi review with nationa counterparts and UNHCR ways in which its ongoing country operations may quicky be adjusted to enabe UNICEF to provide emergency assistance in pre-identified sectors." r United Nations Deveopment Programme (UNDP) UNDP is usuay (but not aways) the ead UN agency in the country. As indicated above, the UNDP Resident Representative is often the DHA representative as we as the designated officer for security in the country. As such the UNDP representation may have a coordinating function and coud we be invoved in the panning process. Any contingency pans shoud dovetai with deveopment pans and the activities of UNDP and other UN agencies invoved in deveopment activities. This association shoud begin at an eary stage in the panning process, since decisions at this stage can often have onger term impications for deveopment programmes. Accordingy and as a minimum, the UNDP representative shoud be kept informed of pans and progress if not activey participating. r Other United Nations Organisations In some countries the invovement of other United Nations organisations may be desirabe. Amongst the most prominent in reation to refugee assistance are: 4 WHO The Word Heath Organisation in heath reated matters. 4 FAO The Food and Agricutura Organisation which undertakes food situation eary warning activities and provides and usage information. 4 UNFPA The UN Fund for Popuation Activities for issues reated to reproductive heath and combating sexua vioence. An MOU was signed with UNFPA in June UNCHR The Office of the Human Rights Commissioner for eary warning and human rights monitoring. 4 UNESCO The United Nations Educationa, Scientific and Cutura Organisation has a Bureau of Internationa Education based in Geneva which is deveoping programmes to assist refugees in emergency situations in the education sector. They are abe to provide teaching

23 materias and expertise. 4 WMO The Word Meteoroogica Organisation which can provide hydroogica data and pertinent information on weather patterns which are important to panning; 4 UNRWA The UN Reief and Works Agency for Paestinian Refugees in the Near East which has considerabe experience in medica, education and reief assistance in the countries for which UNRWA has a mandate; r United Nations Peace Keeping and Specia Operations In some countries the United Nations has mobiised country or mandate specific peace keeping or specia operations. Often these wi be headed by a Specia Representative of the Secretary Genera. Often they have considerabe ogistics resources (transport, communications and human resources) which, under certain circumstances, can be mobiised for contingency panning. One coud foresee a roe for these operationa units in border monitoring and reporting of arrivas, interna ogistics by both and and air, staff and sometimes refugee security, area mapping and communications. Since their mandates are often quite strict and we defined, the nature of their contribution needs to be discussed in each case. Some of the operations are isted beow, but these are frequenty changing and indicative ony: IFOR Bosnia and Herzegovina MINUGUA Guatemaa MINURSO Western Sahara UNPREDEP Macedonia UNTAES Eastern Savonia UNAVEM III Angoa UNOMIL Liberia UNOCHA Afghanistan UNOMIG Georgia UNAUB Iraq UNMOT Tajikistan UNICIB Burundi UNOR Rwanda r Internationa Organisation for Migration (IOM) IOM works very cosey with UNHCR in the movement of refugees and dispaced persons. They have the abiity to organise trucking feets for the transport of refugees and returnees and where they have a country presence woud be an asset to the panning process. In 1996 IOM worked together jointy with UNHCR in connection with the CIS Conference resuting in joint operationa arrangements and a genera UNHCR/IOM Memorandum of Understanding is under preparation. r Inter-governmenta Organisations and Regiona Operations In some regions, inter-governmenta bodies have operationa units which might have a roe to perform in the event of an emergency. In some cases their roe is simiar to the specia United Nations operations mentioned above, whie in other instances there presence is intended to provide a neutra and impartia monitoring and confidence buiding function. They may be mobiised to assist with border monitoring, poitica inteigence and eary warning inputs and sometimes ogistics. Exampes of these are: OSCE & EU Monitors Various Eastern European & Bakan countries ECOWAS Liberia OAU Great Lakes Region OAS Nicaragua

24 r Internationa Red Cross and Red Crescent Movement The Internationa Red Cross and Red Crescent Movement consists of the Internationa Committee of the Red Cross (ICRC), the Nationa Societies (now 169 officiay recognised, throughout the word) and their Internationa Federation. The two internationa components of the Movement have their respective headquarters in Geneva. Athough the work of a components is governed by the Movement's Fundamenta Principes, each is nevertheess and independent entity. They meet reguary, in principe once every four years, with a the States party to the Geneva Conventions. The Movement has a unique position as a neutra and independent word-wide provider of assistance and protection in countries of origin to war victims and victims of disaster. The effectiveness of its work is enhanced by the compementarity of its components. ICRC: The Internationa Committee of the Red Cross is the founding body of the Movement and has a specific mandate under internationa humanitarian aw and in particuar the four Geneva Conventions of 1949 and their Additiona Protocos of It works in situations of internationa or interna armed confict and other situations of vioence. As an independent and purey humanitarian institution, the ICRC, by virtue of its own humanitarian right of initiative or its mandate under the Geneva Conventions, brings impartia and indiscriminate assistance and protection to victims of war (i.e. to a who are entited to benefit by the fundamenta guarantees of internationa humanitarian aw: the wounded and sick, captured combatants and civiians, and generay speaking the civiian popuation as a whoe - incuding IDPs). The ICRC is consequenty present on the spot, in countries of origin, often in areas inaccessibe for others. The Nationa Societies: Within their own countries each Nationa Red Cross or Red Crescent Society serves as an auxiiary to the pubic authorities in humanitarian matters. They were originay formed to back up the armed forces' medica services in time of confict, and must prepare in peacetime to do so. As their disaster preparedness activities have meanwhie been extended to cover both man-made and natura disasters, the Nationa Societies may have deveoped contingency pans which incude stockpies of reief items, sheter arrangements, a arge community vounteer force, medica faciities and ogistic capacities. Any refugee contingency pan shoud not ony take these pans and capacities into account, but shoud ideay take advantage of them so as not to dupicate preparedness initiatives. Thus the advice and, where avaiabe, the support of the Nationa Society is highy recommended. It must, however, be borne in mind that the Red Cross system works independenty. Important tasks performed by the Nationa Societies with the hep of the ICRC incude tracing activities, famiy reunification and the distribution of Red Cross messages. Each Nationa Society aso engages in other specific activities, such as coecting bood donations, training first-aid workers and nurses, running hospitas and assisting the disabed, the young and the edery. Some Nationa Societies carry out programmes at the internationa eve as we. Internationa Federation: the Internationa Federation of Red Cross and Red Crescent Societies assists Nationa Societies in the deveopment of their humanitarian activities, especiay those on behaf of vunerabe groups. By co-ordinating internationa reief operations in disaster situations - in particuar for victims of natura disasters and for refugees outside areas of confict - and encouraging deveopment aid, it endeavours to prevent and aeviate human suffering. At the Headquarters eve, the Internationa Federation is famiiar with the work of the various Nationa Societies and encourages UNHCR to seek its advice on what the Nationa Societies can do to hep. It is present in many countries to train, support and further deveop the Nationa Society. In some cases it aso engages in country operations by depoying Red Cross/Red Crescent Society expatriates and providing its newy deveoped "Services Packages" as an externa rapid response capabiity primariy to meet heath care and ogistics needs.

25 r Non-Governmenta Organisations (NGOs) The organiser of the panning process must consider the invovement of both internationa and oca NGOs. Frequenty oca NGOs are overooked, but they often do have an exceent understanding of the refugee and oca communities, know the oca anguages, are often cheaper in programme impementation and their invovement often has beneficia institution buiding spinoffs. Their roe and participation in the panning discussions often entais matching of experience and expertise with internationa NGOs. This kind of constructive diaogue between expatriate agencies (incuding UN personne) and oca agencies is essentia for the production of reaistic pans. Internationa NGOs contribute technica expertise, externa funding, rapid response and can introduce vauabe essons and approaches to probems tested in other emergencies. UNHCR has ong standing working reationships with a wide range of NGOs and the UNHCR pubication "Partnership: a UNHCR Handbook for Impementing Partners" is we worth consuting. It incudes a chapter on Refugee Emergencies. It is unikey that internationa NGOs wi trave to a country to attend contingency panning sessions, so one wi normay ony have the opportunity to invove those agencies aready present. Others may be abe to respond rapidy in the event of an emergency. With this in mind it may be prudent to identify serious sector gaps in the contingency pan and share the pan and aert internationa NGOs which coud respond. The seection of these NGOs wi depend on proven rapid response capabiities, an earier association with the country, appropriate anguage skis and acceptabiity from a nationaity perspective. UNHCR has operated effectivey with a wide range of NGOs so any ist woud be incompete. Nevertheess, here is a ist of some of the NGOs cooperating frequenty with UNHCR. CARE Logistics, distribution IRC Medica LWF Logistics, distribution MSF Medica, Suppementary feeding, sanitation Oxfam Water systems SCF Suppementary feeding Some NGOs do not have an assistance roe but primariy an advocacy mandate. Their roe may we be different from those above but may nevertheess be usefu partners in the process. UNHCR has pubished an NGO Directory isting partners and those which have roes in research and advocacy. The Directory aso ists the NGO by country of origin, country in which it operates as we as sector expertise. To compement this, EPRS has deveoped a data base to capture the emergency standby capacities (human, financia and materia) of a seect NGOs with a proven track record in emergency assistance activities and who have estabished emergency response arrangements. Together, these resources may be usefu toos in identifying which NGOs coud contribute to the various stages of contingency panning. Foreign Government Representation Foreign Embassies may have the foowing potentia roes: (a) The provision of information usefu for eary warning (b) The provision of funds - as potentia donors they may be most interested in contingency panning initiatives. Keeping them informed may ensure more rapid funding in the event of an emergency since they wi advise their capitas that the panning is serious and the operation ikey to proceed on soid foundations. (c) The provision of biatera assistance. This may be humanitarian assistance in the emergency stage, and some Governments are cooperating with UNHCR in "signing up" for Service Packages (see annex A for more detais). Thus they may be potentia partners in any operationa response. Some governments may be represented in the fied by government or quasi-government assistance agencies such as USAID, CIDA, ODA, GTZ and so on which may have a potentia roe in the panning.

26 (d) An advocacy roe vis-a-vis the Government incuding easing the host government reuctance to participate in contingency panning. It may be considered that foreign embassies and other forms of representation need not be invoved in the panning process itsef but it is often most advisabe to keep them informed through "donor mission briefings" and sharing the scenarios and the report with them. The minima effort taken in this regard wi very often pay considerabe dividends. r Refugees and Loca Popuation Refugee participation in panning is desirabe. Refugees are often the best, if not the ony, source of information regarding the situation in the country of origin, especiay if the area from where they come is remote and inaccessibe. Often too, they are we aware of eary warning signs of changed circumstances in the country of origin. However, carefu judgement shoud be used as to the extent they participate in contingency panning, given the sensitivities invoved. For exampe, panning for a repatriation may ead to fase hopes and expectations whie panning for a sudden infux may ead to specuation and anxiety. On the other hand, their participation wi be essentia in panning for a natura disaster in a settement or and epidemic. If, as is usuay the case, it is decided that their incusion in goba panning may be counter-productive, then every effort shoud be made to seek their input through other types of consutation. Section 4 - The Pan As we have seen in Section 2, the Pan is a product of the process. It has a short ife since the situation is often in such a state of fux that the pan requires constant updating. That being said, some tangibe record of the panning process is essentia. There are other "products" of the process such as stockpies, training, information gathering and so on. It is the pan which brings these a together in a coherent form and expains how each component is part of a the whoe. The Characteristics of a Good Pan 4 It shoud be comprehensive yet not too detaied. The aim is to find the right baance between covering a the important issues yet not fooding the pan with detai. 4 It shoud achieve the baance between fexibiity and concrete actions. The Pan must not be too directive, restrictive and confining. One shoud avoid the comment "but the pan says we shoud do it this way". The definition of pan in this case is "intention, way of proceeding" and not "bueprint". This being said there shoud be adequate guidance and direction on the way to proceed. 4 It shoud be we structured, easy to read and, importanty, easy to update. Much of the Pan wi be action oriented, thus ayout ceary showing what needs to be done, by whom and by when wi certainy aid impementation. 4 It shoud not contain too many assumptions. This is easy to recommend, but of course by its very nature, contingency panning is based on assumptions and predicting uncertainty. The ski is to minimise these or at east consider the eve of probabiity in a assumptions. 4 It shoud be a iving document, constanty being updated, amended and improved. It is not a document which is comprehensivey revised once in a whie but constanty in a state of change. Size, structure and a user friendy word processing programme wi faciitate this. A Mode Structure The foowing is a proposed structure for a contingency Pan. It is based on a refugee infux and whie the main chapter headings can be adapted to different critica events and emergencies, adaptation wi naturay be required for different scenarios. Other circumstances wi suggest adaptation - for exampe if separate regiona pans are required with different scenarios and

27 activities for different regions. Chapter 1 Genera Situation and Scenarios i. Current country operation ii. Entry points iii. Tota panning figure iv. Arriva rate v. Reception and anticipated in-country movement vi. Settement arrangements vii. Emergency response trigger viii. Expected refugee profie Chapter 2 Poicies and Overa Operation Objectives i. Overa poicy (strategic) objectives of the programme ii. Comments on poicy stance of various partners Chapter 3 Objectives and Activities by Sector i. Management and overa coordination ii. Protection, reception, registration iii. Food iv. Logistics and transport v. Infrastructure and site panning vi. Sheter vii. Domestic needs and househod support viii. Water ix. Environmenta sanitation x. Heath and nutrition xi. Community services xii. Education xiii. Economic activities Each section shoud incude a consideration of sector objectives, needs, resources, activities, existing and proposed preparedness measures, impementation responsibiities and timing. Annex C ists the considerations for each sector and Annex D a mode Pan. Chapter 4 Procedures for Feedback, Maintenance and Future Action Describe how the Pan wi be updated and revised, who wi be responsibe for ensuring this wi be done and how wi the information be disseminated. Annexes This ist is not exhaustive i. Maps ii. Registration forms iii. Members of the Interagency Group iv. Agency Profies (detais of staff, resources, future intentions) v. Gap identification charts vi. Commodity matrix and specifications vii. Budgets This Pan assumes that it hods a the eements of common interest to a partners in the process. There wi, however, be numerous activities that the government and agencies wi need to

28 undertake to compement their participation in the process and ensure that it is effective. These are primariy manageria, organisationa and administrative tasks reated to their organisation. Staffing, decision making, funding, training, staff support, communications and transport are just some of these eements. In order to prepare for these, each separate agency wi need its own Pan which wi dove-tai with the "master" Pan. Annex A - Standby Resources Upon Which UNHCR Draws Human Resources Emergency Preparedness and Response Officer (EPRO) Senior Emergency Administrator (SEA) Emergency Finance and Administrative Assistant (EFAA) Emergency Response Team (ERT) Roster Emergency manager who undertakes contingency panning and needs assessment missions; eads Emergency Response Teams or existing staff in the estabishment and/or strengthening of UNHCR=s presence. (6 standby staff) Manageria staff with experience and training in a aspects of administration: human resources, finance and genera administration. (3 standby staff) Staff with experience and training in a practica aspects of administration (human resources, finance and genera administration), as we as abiity to train ocay recruited staff. (5 standby staff) Poo of UNHCR staff members from Headquarters and the Fied, who are proficient in functiona areas of UNHCR operations (protection, programme etc), and who are on standby for emergency depoyment for up to 2 months. Norwegian and Danish Roster of pre-identified, screened and trained staff who provide Refugee Counci expertise in critica functiona sectors in emergencies, e.g. Logistics, (NRC, DRC) teecommunications and fied officers. United Nations Vounteers (UNV) Arrangements with Speciaist Agencies UN Vounteers can be depoyed to meet urgent emergency staffing needs as fied officers, food aid monitors, protection officers & some technica speciaists. A number of speciaist agencies second technica experts to UNHCR at short notice as members of Emergency Response Teams. These incude Radda Barnen (community services), Red R (engineers) and Centres for Disease Contro (pubic heath). Technica Consutants Roster of individuas and companies covering such discipines as agricuture, fisheries, economics, heath, sanitation, transport, sheter etc. Staff Support Staff and Office Accommodation Swedish Rescue Services Agency Persona Trave Kit Moduar office/iving accommodation package for staff assigned to extreme hardship duty stations. For most extreme fied conditions without infra structura support, SRSA can be depoyed with equipment and staff to estabish office/housing faciities, sanitation, water, eectricity etc. Carry bag containing seeping bag, piow, mosquito net, towe, torch,

29 Fied Kit Office Kit sma medica kit, rain poncho, pate/bow, sun hat, water botte and fiter. Compies with airine cabin baggage size requirements. Auminum trunk containing a comprehensive range of surviva items for harsh fied conditions, incuding tent, dry food ration packs, purification tabets, too kit etc. This kit comprises items of stationery, suppies, forms and some sma non-expendabe office items, incuding portabe typewriter, desk cacuator, diskettes etc. Computer Equipment Portabe and desktop computer equipment instaed with standard UNHCR software. Vehices A stock of 20 vehices is maintained for depoyment to emergency operations. Teecoms. Equipment Equipment intended to provide emergency staff with immediate voice and data communications inks, even from the most remote ocations. Visibiity Materia A range of items to enhance UNHCR visibiity for reasons of security, protection and pubic reations. Incuded are caps, vests, arm bands, t- shirts, identification badges, UN fags and UNHCR ogo stickers. Operations Support Emergency Operations Room Tents Pastic Sheeting Prefabricated Warehouses Bankets Kitchen Sets Jerry Cans Government Service Packages Standby Trucking and Aircraft Feets (Emercom of Russia) Dedicated room for use as communications and distribution centre during initia stages of an emergency operation, to faciitate a systematic fow of information. 10,000 tents are stockpied at various ocations. They are normay famiy size tents (4m x 4m), and are of heavy canvass with a fy sheet and ground sheet. 66,000 pastic sheets are stockpied at various ocations. They are made of woven ow density poyethyene fibre with a reinforced rim and eyeets aong the edges. Warehouses measuring 24m ong by 10m wide x 5.8m high at the apex and 3.35m high at the side. 150,000 bankets of various quaities (woo ranging from 30% to 50% or cotton and cotton/synthetic fibre mix) are stockpied with suppiers. Stockpies of kitchen sets in varying types are maintained by different suppiers. 50,000 semi-coapsibe pastic 10 itre Jerry cans are maintained by suppiers. An arrangement whereby Governments, usuay resorting to miitary and civi defence assets, provide services in the seected sectors such as air transport, ogistics, water suppy, sanitation and site preparation. A capacity to be used in extreme emergencies in the absence of norma response arrangements. Airift capacity and a trucking feet, incuding two air freighters and trucks accompanied by fue tanker, mobie workshop, escort vehices and personne to man the feet during initia emergency phase.

30 Management Toos Refugee Registration Package Handbook for Emergencies Opening an Office: Checkist for the Emergency Manager A practica Guide on UNHCR's registration strategy and a Kit designed for 30,000 refugees incuding registration cards, forms, software, wristbands, fixing tokens etc. Manager's guide to setting up emergency operations for arge scae infuxes which provides advice in a non-technica manner on various aspects of emergency response. A practica too isting activities requiring attention when estabishing an office, incuding Premises, Transport, Communication, Personne, Staff Conditions, Security, Finance, Equipment, Suppies & document management. Financia Resources UNHCR Emergency Fund DHA Centra Emergency Revoving Fund The Fund of up to US$25 miion aows immediate access up to a maximum of $8 miion for any singe emergency. Estabished in December 1991 to provide funds to respond rapidy to emergencies, the Fund is financed from vountary contributions and is used for cash advances to operationa agencies and entities within the UN system. Emergency Training Emergency Management Training Programme Workshop for Emergency Managers (WEM) Targeted Training A regiona training programme for UNHCR staff, government and NGO representatives invoved with refugee issues, aimed at acquainting participants with emergency panning & management. Interna workshop for members of ERT Roster, to prepare them for emergency depoyment. It provides practica tips, toos and techniques to equip staff to participate as team members in an emergency operation. To compement EMTP and WEM training activities, EPRS can provide ad hoc country/region specific training with a particuar focus (e.g.. contingency panning). Training for specific target audiences (e.g.. externa standby staff) can aso be arranged. Annex B - Eary Warning Indicators Factors Prompting Departure 4 Ethnic/racia tensions 4 Socia tensions 4 Reigious tensions 4 Human Rights abuses 4 Poitica instabiity incuding opposition movements 4 Externa factors e.g. infuence of foreign groups and governments 4 Reations with neighbouring country (ies) 4 Demographic factors - pressure of peope on and

31 4 Ecoogica devastation and other natura events 4 Economic instabiity incuding abour disputes 4 Corruption and drug trafficking 4 Miitary intervention and interference 4 Historica probabiity 4 Favourabe situation in neighbouring country Intervening Factors 4 Aternatives to internationa fight moving in with reatives moving to "iberated" or safe areas moving to camps for the dispaced 4 Internationa reief in pace of origin 4 Internationa protection force or UN peacekeepers in pace of origin 4 Obstaces to fight ack of knowedge of route ack of money (to pay guide, fare, exit fee) poor security aong the route poor heath status of famiy member adverse cimatic conditions impassabe terrain 4 Apprehensions about reception over the border - unfavourabe asyum poicy 4 Cosed borders 4 Uncertain iving conditions in asyum country Triggering Events 4 New type of person affected 4 Probem spreading to new geographic region 4 Significant increase in intensity of situation 4 Changes in viabiity of fight (open border, new neighbouring government...) 4 Departure of key poitica figure, change in poitica party 4 Increased peer group pressure, instruction of eader, "band wagon" 4 Natura disaster 4 Mass demonstration or riot 4 Seasona factors (weather, harvest...) Annex C - Questionnaire for Sector Panning A. Management and overa programme coordination What structure wi coordinate the emergency preparedness and response? Wi there be a "ead" agency and what wi be its tasks? Who wi be responsibe for convening and chairing coordination meetings? What wi be the arrangements for such meetings? How wi regiona and district coordination be managed? What wi be the arrangements for impementing agencies? What agencies are avaiabe? Wi there be a system of registration of agencies? What guideines wi appy to their operation? What are the gaps? What wi be the poicy and arrangements for externa reations, pubic information and deaing with the media? What administrative arrangements are required incuding premises, transport, communications, banking and staffing? What administrative services wi be arranged for the operation as a whoe and which wi be eft to each agency to take care of for themseves? Wi there be a need for a staff security and evacuation pan? Who wi be responsibe?

32 What continued meetings and preparedness training wi be undertaken? How wi the pan be updated? B. Protection, Reception and Registration Who wi be responsibe for the security of refugees? Wi there be independent monitoring? What wi be the roe of refugee groups in security? What are the major protection concerns - access, status determination, movement from the border - and who wi dea with these matters? What wi be the needs of specia groups - singe women, unaccompanied minors, the edery and the disabed, combatants etc? What training and guidance wi be given to border guards and immigration officia? How wi the refugees be registered. Who wi be responsibe for this activity? What staff, information and materia resources wi be required? What kind of registration documents be given to the refugees? (For guidance see the UNHCR Guideines on Registration) Wi refugees pass through reception centres or transit centres? How ong wi be the expected stay in these centres? What assistance wi they receive in the centres? Wi arrangements be made to monitor and gather statistics as refugees pass through the border crossing points? C. Food Which foods are cuturay acceptabe/appropriate? Wi food need to be provided aong the expected route(s)? What wi be the composition of the food basket? Wi the cimate have an affect on the kiocaorie requirements? What food resources are ocay avaiabe? What is avaiabe regionay? What needs to be suppied internationay? Are there oca buffer stocks? What wi be the impact of oca procurement on the oca market? Wi basic food need to be processed or mied? What faciities are avaiabe? Who wi be responsibe for internationa procurement? Is WFP invoved in or aware of the panning? What wi be the food pipeine(s)? What are the arrangements for storage? Who wi manage the faciities? What security wi be put in pace? Is a food distribution system in pace? Who wi be responsibe? What ration cards wi be used? Wi food assistance be provided to the oca community? What arrangements wi be put in pace to provide suppementary and therapeutic feeding? Wi there be a sector coordinating committee? D. Logistics and Transport Are the routes of the movement of refugees identified, mapped and surveyed? What wi be the commodity tonnages for each item? Cacuate the amounts per 10,000 refugees. What are the norma suppy routes for commodities? What are the road conditions ike?

33 Are there any weak points in the suppy ines? What information is avaiabe about internationa points of entry such as ports and airports? What is their capacity? Do they have storage capacity? What are the arrangements for customs cearance? Who wi be responsibe for these matters in the government? What is the avaiabiity of ocay hired/purchased heavy vehices? Can they be serviced? Are spare parts avaiabe? Is fue ocay avaiabe, suppy assured and quaity satisfactory? Are there any prohibitions on the import of reief items? What wi be the impact on the oca infrastructure of the arriva and transport of reief suppies? What wi be the impact of the weather on the ogistics system? Who wi be responsibe for each activity? Who wi coordinate? Wi there be a sector coordinating committee? E. Sheter and other infrastructure How wi the refugees be housed? Have ikey sites been identified? How wi site seection be carried out? What are the impications for oca and ownership? What wi be the impact on the oca community? Is there existing sheter that can be used? Can refugees move directy into durabe sheters or wi an interim soution be required such as pastic sheeting? What are the impications of the weather? What are the impications of the terrain? Are buiding and sheter materias ocay avaiabe? Are stockpie of such materias required? Who wi be responsibe for sheter? What are the conditions of the roads, airstrips and bridges? Wi they need upgrading? Shoud work commence immediatey? Who wi be responsibe? What kind of community structures wi be required? Are these readiy avaiabe? Who wi construct them? What measures wi be undertaken to prevent degradation of the environment? Are sites distant from nationa parks, protected areas and environmentay fragie zones? F. Domestic needs and househod support What are the customary items used by the expected caseoad? Wi the refugees bring any items with them? Which items wi be required and/or provided? Are buffer stocks necessary? What is readiy avaiabe on the oca market? What wi be the distribution arrangements? What quantity of each item wi be given per famiy/person? What is the storage avaiabiity? Who wi be responsibe for purchase, storage, transport and distribution? How wi distribution be recorded? Wi there be a non-food item ration card? What fue wi be used for cooking and warmth? Wi this ead to degradation of the environment? Are there any aternatives? How wi the specia needs of women (hygienic kits, sanitary napkins) be deat with?

34 G. Water What are the refugees customary habits for bathing, drinking, washing and food preparation? What is the water avaiabiity aong the expected route? What is the water avaiabiity in expected areas of settement? What is the best option for water suppy (tankers, shaow wes, springs, rivers, deep wes...)? What is the water quaity of a options? What purification wi be required? What arrangements can be made for water storage? What arrangements wi need to be made for reticuation and distribution? Wi there be sufficient quantities or wi some form of rationing be required? What types of water containers are appropriate? Shoud buffer stocks be estabished? Shoud water trucking, purification, distribution items be stockpied? What wi be the impact of the infux on the oca community? Who wi be responsibe for a aspects of water suppy? What wi be the coordination arrangements? What water use education programmes wi be instituted? H. Environmenta Sanitation What type of atrines wi be necessary? Wi faciities be needed at reception centres or aong the expected routes? What wi be the ratio of peope per atrine? Are they cuturay appropriate? What considerations wi be given to atrine ocation in reation to other faciities? Who wi construct them? Can refugee abour be mobiised? What toos, equipment and materias wi be required? How wi garbage disposa be deat with? What arrangements wi be made for buria sites? What kind of sanitation education programmes wi be impemented? Who wi manage this sector and impement the activities? I. Heath and Nutrition What heath screening/services wi be provided to new arrivas? How wi this service be handed? What customary habits wi need to be taken into account? What curative heath care faciities wi be provided? Wi there be an outreach programme? What arrangements wi be made for immunisation and vaccinations? How wi preventive heath and heath education be handed? What specia measures wi be taken if there is overcrowding or harsh cimatic conditions?

35 What medica suppies and equipment wi be required? Are they avaiabe ocay? Does a cod chain exist? Can it be estabished? What storage faciities are avaiabe? What are the pans for suppementary and therapeutic feeding? Which vunerabe groups wi be targeted? What arrangements wi be in pace for nutrition monitoring? Who wi impement this sector? How wi it be coordinated? J. Community Services What assumptions can aready be made about the socio-demographic composition of the caseoad? What are the traditiona community structures? What is the traditiona roe of women? What types of community structures are envisaged (heath educators, sanitation committees, refugee community representatives...)? How wi refugees be encouraged to be invoved in these structures? What wi the approach be to vunerabe groups (unaccompanied minors, edery, disabed, singe femae headed househods)? Who wi undertake assessments and faciitate community service activities? What kind of demographic information wi be required? What arrangements wi be made for tracing and famiy reunification? What specia arrangements be made to ensure that a groups in the community have equa access to reief commodities and services? How can refugee community structures be mobiised to meet these needs? What oca resources are avaiabe? K. Education What is the traditiona standard, eve of enroment and type of education of the refugees? What curricua wi be provided? Can text books from the country of origin aready be procured? Can refugees be integrated into the schoo system in the country of asyum? If so at what eve of infux wi this become untenabe? What assistance to oca schoos can be panned? Wi educators and administrators be expected with the infux? How wi they be identified? Are there specia needs for girs and boys? How wi they be encouraged to participate? Wi there be skis training and recreation activities for aduts and youth? What equipment and suppies wi be required in the emergency stage? Are simpe recreationa and educationa materias avaiabe ocay? Can schoo sites be identified aready? What sheter materias wi be avaiabe? Which agencies wi take responsibiity for this sector? L. Economic Activities What skis and trades are the refugees expected to bring with them? Can income generation activities be easiy impemented? Is and avaiabe for farming or grazing? Are tensions expected between the refugees and the oca peope? How wi these be deat with?

36 What wi the poicy be towards refugee incentives and aowances for services provided to the agencies and the community? How wi the incentive system be coordinated between agencies? Themes There are certain cross-cutting themes which permeate most, if not a sectors. These are refected in some of the questions posed above, but they warrant specia mention so that they are not ost when deaing with the specifics. When answering the questions above, one must consider the impications on these issues. The most important are: Refugee participation Protection impications Particuar needs of women, particuary singe women headed househods Specia needs for vunerabe groups Environmenta impact Effective management arrangements for each sector Capacity buiding Durabe soutions orientation Poitica, security and financia ramifications Annex D - Exampe Contingency Pan There is an advantage in providing an exampe pan since it concretises the expanation and guidance given above. However, there is aso a danger, since there may be a tendency to concentrate on the exampe to the extent that it becomes a "straight-jacket", restricting the panners vision. A word of caution therefore: Take guidance from the exampe but adapt it, amend it, reshape it, to refect the circumstances in your situation. This exampe is fairy superficia, in that it refects the Pan at an eary stage in the process. In it, there are many questions eft unanswered and in subsequent activities of the panners these wi need to be deveoped and answers given through ongoing meetings, technica assessments and fied visits. The exampe has been reproduced in a reduced format to save space. Contingency Pan For a Refugee Infux into [Country] This document is an interna working document of the agencies which are members of the inter-agency committee for refugee contingency panning in [country]. It is confidentia and shoud not be shared with any persons outside these agencies. The scenarios indicated are for panning purposes for a humanitarian response ony and do not impy any poitica stance of the participants in the panning process. The UNHCR Office in [city] acts as the faciitator of the inter-agency meetings and provides the secretariat for the drafting of the pan. Last Update: [date] Contents

37 Chapter One Chapter Two Scenarios Overa Poicy Objectives Chapter Three Sector objectives and activities A. Management & overa programme coordination B. Protection, reception and registration C. Food and nutrition D. Logistics and transport E. Sheter and other infrastructure F. Domestic needs and househod support G. Water H. Environmenta sanitation I. Heath and nutrition J. Community Services K. Education Chapter Four Annex 1 Annex 2 Annex 3 Annex 4 Annex 5 Annex 6 Monitoring and Foow-up Acronyms Agency Profies Agency Activity Matrix Members of the Interagency Group Commodity/Budget Matrix Country Map Chapter 1 Panning Scenario The foowing is the Scenario on which the contingency panning is based. It assumes an infux of, at this stage, equa probabiity into [country] from [country 2] and [country 3] of the minority group in those ocations. The refugees may cross directy or may transit the neighbouring country if the and routes are more favourabe. An infux from [country 4] where there is a sma minority group

38 is a possibiity, but ow in ikeihood, so panning on this basis is not considered necessary at this stage. Trigger to aunch emergency procedures or "change gear" Emergency response procedures wi begin when there is an: * Arriva rate of 100 peope per day over 7 days and/or * When the tota reaches a critica mass of 1,000 persons and * When the situation in the country of origin is such that sustained arriva is ikey. Prior to that, shoud there be a change in the situation in a [country 2] or [country 3], which the interagency group fees is serious, a state of aert wi be decared. If so certain enhanced preparedness activities, as indicated in the sector pans, wi be instigated. Certain eary warning awareness and activities wi need to be undertaken in the countries of origin to provide the group with the most reiabe information required to enabe it to make this assessment. Panning Figure The popuation of [minority group] in [country 2] is 1.9 miion, in [country 3], 450,000 and in [country 4], 100,000 and thus totas amost 2.5 miion. The panning figure for this current pan is for an arriva rate of 50,000 in the rainy season and 200,000 in the dry season. It aso assumes a rapid escaation rate, thus panning over 12 weeks wi be based on the foowing: Week Daiy Arriva Weeky Arriva Running Tota ,500 3, ,600 9, ,000 7,000 16, ,500 10,500 36, ,500 10,500 46, ,500 17,500 64, ,000 21,000 85, ,000 21, , ,000 21, , ,000 35, , ,000 35, ,000 Monitoring of rate and departure point of refugees the country of origin is essentia, as are the

39 reasons for fight. An isoated incident prompting a sma movement wi not necessariy have the same impact as widespread civi unrest or miitary intervention. This wi need to be monitored and the scenario adjusted accordingy. Border Crossing Points From each of the three bordering countries there are three main crossing points, with at present 2 crossing points, whie passabe, cosed to traffic by the authorities. At a but two of these there is an observer contingent of the UNP. The more remote of these may be congested in the wet season due to the quaity of the approach roads. In-Country Scenario For the 3-5 days after the arriva of the first border crossings, some persons may be accommodated with host famiies and in schoos and other pubic buidings. The atter may need to be temporariy used for the accommodation of refugees. This gives some, but very itte, breathing space for the preparation of other sites. The country is divided into 3 regions running from north to south: the mountainous border region, the centra pateau and the costa pain. Transit Centres wi need to be estabished near the border entry points in the highands, but for ogistic reasons, ong term sites are not sustainabe in this area and it is preferabe to move the refugees away from the border zone. The coasta pain is not viabe for poitica reasons, thus ong term sites are required in the centra pateau. Three zones wi be identified on the main east-west arteries and custers of site identified in these zones. Arrivas wi move through transit sites to these zones of settement. Shoud the arrivas reach the maximum panning eve another acceptabe settement zone wi need to be identified. A onger term sites wi need a year accessibiity, to aow for deivery of food, non food items and kerosene. No assistance wi be given to persons setted in coasta regions. From [border points in country 3] transport of refugees wi be by road and river ferry in wet season and road in summer. In other areas transport wi be by road ony. An undetermined number of refugees wi arrive in their own vehices. Refugee Profie Famiy size 6 persons. Mosem. If their is a resistance movement in the pace of origin, the caseoad wi have a high proportion of edery, chidren and singe women headed househods. Where there are no resistance activities the edery may remain behind. Panning shoud nevertheess assume 60% or more women and a high percentage of chidren under 15 years. Chapter 2 Overa Poicy Objectives Through an effectivey coordinated programme, between the Government, UNHCR, and other UN agencies and NGOs: * ensure protection and minimum standards of treatment (incuding freedom and security); * meet the basic needs of the popuation incuding food, sheter,

40 water, sanitation and heath care; * minimise stress and suffering, taking account of the psychosocia and community aspirations of the refugee popuation through the eary estabishment of community services; * take into account the ogistics reaities, poitica constraints and the impact on the oca communities of a substantia infux; * impement a programme which is constanty monitored and adjusted to take account of new reaities; * ensure burden-sharing through the mobiisaton of the internationa community as we as the invovement of deveopment agencies to address the onger term impact on the country; * respect famiy and community group unity and take this into account when impementing settement arrangements; * keep in mind the ong term objective of the most appropriate durabe soution, namey the vountary repatriation of the refugees to their pace of origin. A. Management and Overa Coordination Situation Chapter 3 Sector Objectives and Activities UNHCR has been present in [country] since May Its primary activity has reated to the protection and assistance of refugees from [country]. There are a number of active UN agencies, Inter-governmenta bodies and NGOs in [country] working in the Humanitarian fied. In May 1995 the first Inter Agency round tabe was hed, bringing together a number of these agencies to coectivey begin the contingency panning process. Present were: UNHCR [country] Refugee Coordinator [country] Ministry of Defence [country] Ministry of Foreign Affairs UN Peacekeepers UNDP/DHA

41 WFP UNICEF IFRC/[country] Red Cross ECHO CRS Equiibre Other agencies which were unabe to attend were, the OSCE and USAID. The Round Tabe constituted the beginning of the panning process, the intention being that the above parties, as we as reevant other agencies as decided by the group woud meet reguary to monitor the eary warning indicators, update the pan and report on actions taken in the intervening period. UNHCR woud act as the ead agency and convene/faciitate the meetings. Objectives/Standards/Needs 4 Improve preparedness arrangements for a rapid response. 4 Ensure effective coordination between agencies, with shared or at east cear objectives, no overap in responsibiities and attention paid to unmet needs. 4 Individua administrative pans/arrangements of respective agencies wi take account of ways in which faciities such as transport, communications, staff security, office faciities can be shared to the extent possibe. 4 Effective and cear committee structure. 4 Guideines and codes of conduct for agencies. Activities Activities By Whom By when Genera Coordinating Committee to meet initiay every 3 months for one day. Standard agenda: review eary warning indicators and update the pan. Sub Committee on food, non food items and ogistics. Sub Committee on Heath and Sanitation. Sub Committee on C it S i UNHCR to convene and faciitate. Attendance by agencies isted above. UNHCR to faciitate. A reevant agencies. UNHCR to faciitate. A reevant agencies. UNHCR to faciitate. A t i Every 3 months initiay. Frequency to be increased if eary warning indicators warrant it. After aert stage After aert stage After aert stage

42 Community Services. Staff Security arrangements and evacuation Communications: convene a working group to assess current capacities and optima future arrangements Decide on camp management arrangements. reevant agencies. UN Peacekeepers to incude UN and NGO staff in pans UNHCR to convene with UN Peacekeepers, Red Cross and other reevant agencies UNHCR Immediate Immediate Immediate B. Protection, Reception and Registration Situation The main Government Ministry responsibe for refugee matter is the Cabinet Office (Refugee Coordinator). [country] is a signatory of the Internationa Convention on the Status of Refugees. This pan is premised on the assumption of unhindered entry into [country]. It assumed that the arrivas wi be determined to be prima facie refugees. The arriva scenario is outined in the first section of this pan. It is assumed that some refugees wi arrive of foot but many using various means of road transport. The border crossing points wi be monitored by internationa agencies in addition to the Government authorities. Most but not a wi pass through transit points (sometimes referred to as acceptance points). These wi be the ocation for first registration. From there, refugees may move to host famiies or transit centres. A refugees entering coective centres or transit centres wi need to be registered beforehand. More detaied registration can take pace in the settements. Ony registered refugees are eigibe to receive assistance. Objectives/Standards/Needs 4 Safe and unhindered entry. Prevention of detention and harassment. 4 Safe asyum. Freedom of movement, setted in ocations away from the border and not in confict with the oca popuation. Refugee groups to be disarmed. 4 Effective registration, in two stages, providing proper documentation and identifying the vunerabe groups. 4 Prediction of continued arriva rates through inter aia the interviewing of arrivas. 4 Promotion of the principe of famiy and group unity. 4 Ensure the peacefu and civiian nature of the settements. 4 The protection and addressing of the specia need of vunerabe groups such as unaccompanied minors and singe women. Activities

43 Activities By Whom By When Negotiation with the Government authorities to interaia ensure safe entry and asyum, define the parameters for the sites and minimum standards of treatment. Refugee security, freedom and proper treatment according to UNHCR standards. Monitoring : arriva - transit - settement. Registration - acquire guideines & kits - training - design/print cards & documents - impementation - monitoring UNHCR (may invove high eve missions from time to time) Government UNHCR, UN Peacekeepers (border ony), Government, CIVPOL, and NGOs UNHCR UNHCR/IFRC/Red Cross/ICRC UNHCR/IFRC/Red Cross Government/Red Cross UNHCR Immediate and ongoing On arriva and ongoing On arriva and ongoing Immediate Immediate On aert On arriva and ongoing On arriva and ongoing Identify vunerabe groups Red Cross On arriva Disseminate and monitor the impementation of guideines on the treatment of vunerabe groups. Project arrivas through interviews and other information gathering. Raining oca poice in the treatment of asyum seekers Disarming of refugees at border crossing points or thereafter if that is not possibe in a cases. UNHCR UNHCR/Red Cross UNHCR/CIVPOL Government On aert (training) and ongoing on arriva Soon after arriva On aert On arriva and ongoing Tracing Red Cross On arriva and ongoing Provide aw and order, and ensure civiian nature of settements. Government/Refugees On arriva and ongoing

44 C. Food and Nutrition Situation WFP are not resident in [country] but cover the country from their office in Rome. They do make periodic visits to [country] and wi endeavor to attend a coordinating meetings. It is ikey that they wi estabish a presence in [country] if there is a major infux. The standard food basket and ration scae wi appy pending a needs assessment after arriva. Whie some food items are ocay avaiabe (in particuar bread), it is assumed that the buk of the food requirements wi need to be imported. It is not assumed that there wi be major or widespread manutrition probems due to the conditions in the country of origin and the reativey short distances for fight. Whie the current refugee caseoad are receiving daiy cooked food, this wi not be the case for any new major infux. Uncooked food and cooking faciities wi be provided. The pan for the immediate suppy of food is premised on a muti strategy approach of stockpiing, oca purchase, airifting and diversion pending the estabishment of the onger term pipeine. WFP woud then deiver basic food items to the EDPs at the settement zones. Objectives/Standards/ Needs 4 Provide at east the minimum food and nutritiona requirements taking into account seasona, cimatic, cutura and traditiona factors. Standard more than 1,900 kca per person per day. 4 Monitor food and nutritiona needs through ongoing needs assessments and reguar nutrition monitoring. 4 Provide one-off sustenance on arriva and for persons in transit, a ready to eat package on arriva in settements, in particuar in the eary stages of the emergency operation, and then a standard dry ration for ongoing needs. 4 Address the needs of those requiring specia feeding attention. Activities Activities By Whom By when Preposition stocks of HDRs and HPBs for immediate needs for 3,000 persons for 7 days. basic emergency ration is 1 HDR and 50gms HPB per person per day or equivaent. - Submission to donor (AID) - In country stockpie Airift HPBs for immediate needs of 3,000 persons for 7 d UNHCR/WFP WFP WFP Immediate On aert Prepare on active aert and deiver on refugee arriva

45 days. Loca purchase of bread, cheese, tea, and/or canned food for the immediate needs of 3,000 persons for 7 days. Diversion of commodities destined for Former Yugosavia Joint needs and resources assessment. Resourcing basic food requirements provisionay as foows: wheat four 400gms puses 40gms vegetabe Oi 25gms protein food (meat, fish, cheese) 40gms iodized sat 5gms sugar 20gms Additiona (appropriate) food suppies Estabishment of a food coordination committee (combined with ogistics and non food items). First task; to estabish guideines for food standards (quantity & quaity) and the provision of additiona food from another donors and NGOs. Food distribution - Training and Panning - Resourcing of equipment - Impementation - Reporting UNHCR/NGOs WFP WFP/UNHCR WFP NGOs UNHCR faciitate pus a reevant actors. CRS from EDP to settements Red Cross in settements On arriva On arriva 1st week after arriva and ongoing on arriva and ongoing on arriva and ongoing on aert on aert on aert on arriva and ongoing on arriva and ongoing D. Logistic and Transport Situation

46 The refugees wi be ocated in the settement zones where there is easy access by seaed roads. Distances are not arge and the road network is reasonabe except in the Eastern Highands. Heavy vehices are ocay avaiabe for hire and maintenance and repair faciities commerciay avaiabe abeit of fair quaity. Whie some trucks may need to be hired, UNHCR wi have its own feet. Apart from air access to the airports at the capita and a miitary airport 100 km to the north east of the capita (for which anding rights wi need to be sought), road access for commodities wi be possibe from the south and sea access at the two ports on the coast. The rai network is rudimentary but functioning. Fue is readiy avaiabe, but to ensure uninterrupted suppy some buffer stocks wi be hed by UNHCR or an impementing partner. Storage faciities wi be ocay avaiabe, provided by the Government or for commercia rent. Some prefabricated warehouses wi need to be brought in to the country. Objectives/Standards/Needs 4 Efficient and secure movement of food to the EDPs and from the EDPs to the settements. 4 Efficient and secure transport of non food items 4 Safe and efficient transport of refugees with no transport and their possessions from the transit points to the settements. Some vunerabe groups and persons in specia need wi be transported from the border arriva points. 4 Secure and wi manage storage of food and non food items at the EDPs and at the settement warehouses. 4 Minima deays and paperwork at the border points of entry for reief commodities endeavoring to arrange for streamined procedures. 4 An uninterrupted suppy of fue and we serviced and maintained vehices. Activities Activities By Whom By when Assess increased in-country commodity trucking capacity and avaiabiity. Manage and operate in-country trucking feet for food from EDP to settements and of NFIs from deivery points to settements. Assess increased storage avaiabiity in-country. Manage warehouses and storage faciities for food and NFIs Arrange for priority access and i b d d CRS CRS CRS CRS UNHCR/CRS On aert On arriva and ongoing On aert On arriva and ongoing On aert

47 streamine border procedures for the import of reief items. Manage the customs cearance and entry of reief items. Manage the air head, arrange for unoading of reief commodities in the initia emergency stage. Arrange for the transport of refugees to settements Identify sources of vehice fue suppy and storage arrangements. Manage fue depot Maintenance of heavy and ight vehice feets. CRS UN Peacekeepers RCS UNHCR/CRS CRS UN Peacekeepers to provide ocation for storage Commercia enterprises with CRS monitoring On arriva and ongoing On arriva On arriva On aert On arriva and ongoing On arriva and ongoing E. Sheter and other infrastructure Situation Both transit centres and more permanent settements in the seected zones wi be tented, with famiy size tents for both dry and heavy rain conditions in custered groupings with cooking and atrine faciities for each custer and readiy avaiabe water suppy. It is unikey that in the emergency stage any attention wi need to be given to the upgrading of roads except for some bridges and access driveways eading to or within the settements. This can be done by the Government or private contractors. In the panning of the use of tented settements one must take account of cooking faciities, heath centres, agency and camp management space, community faciities incuding paces of worship, atrines and water distribution points. Objectives 4 Adequate accommodation for a arrivas. 4 Accommodation to be provided according to UNHCR standards, namey tota space per person within the perimeter 30 sq metres and iving space of 3.4 meters per person. 4 A sites to be in accessibe areas within the seected zones on the centra pateau, not expose to the severe weather conditions, with secure and defined perimeters, not too cose to oca popuations and distant from the border and coasta pain.

48 4 A ocations to have adequate services such as water and soi conditions suitabe for atrines where necessary. Eectricity woud be desirabe, particuary for communa ighting and cooking, but not essentia if excessive resources required to provide the service. 4 Tented settements to be panned according to UNHCR standards in custers respecting group unity according to pace of origin. Activities Activities By Whom By when Negotiate with the Government for the identification of settement zones and specific sites. Pastic sheeting to be provided from emergency stockpie. Begin panning of tented settements. Despatch tents from emergency stockpie. Identify bridges and any access roads requiring repair. UNHCR UNHCR UNHCR UNHCR and Red Cross UNHCR/Government Immediate On arriva Immediate On arriva Immediate Repair infrastructure UNHCR On aert F. Domestic needs and Househod Support Situation In deciding on the type of items required the foowing wi need to be taken into consideration: - Eectricity may be avaiabe for cooking but if not aternative fues such as kerosene, wood and coa may be possibiities. Environmenta concerns must be considered when making the choice. - Some items wi be brought by some refugees. Surveys wi need to be undertaken through community structures to determine needs of individua famiies. - The harsh cimatic conditions may have an impact on the determination of the basket of items. Objectives/Standards/Needs 4 Domestic items to be provided to aow for sef sufficiency in cooking food, adequate warmth and persona hygiene. Items shoud take into account the specia needs of women and singe persons not part of a famiy unit.

49 4 Donations may be soicited fro NGOs and other donors, but the type of items must be consistent with the guideines agreed by the interagency group and distribution coordinated so as not to distribute items uneveny. Activities Activities By Whom By when Confirm the quantity and quaity of Non food items provisionay estabished as foows: kitchen sets - 1/ famiy hygienic kits - 1/famiy/mth soap - 2 bars/famiy/mth bankets - 2/person seeping mats - 1/person Jerry cans - 1/famiy Additiona donations of cothes Undertake needs assessment of domestic needs and adjust items accordingy Procure imited stocks or identify suppiers for sufficient items for 3,000 persons in first 7 days of emergency. Procure additiona stocks from oca or internationa sources. Kitchen sets, bankets, Jerry cans avaiabe from the UNHCR Emergency stockpie. Arrange and manage transport and storage. UNHCR NGOs UNHCR UNHCR UNHCR/NGOs CRS On aert On arriva and ongoing 1st week after arriva On aert On arriva On arriva Distribute NFIs Red Cross On arriva Arrange and streamine customs cearances and border arrangements as for food items. Investigate appropriate h ti t ki UNHCR/CRS UNHCR On aert Immediate

50 heating stoves, cooking stoves and fue options taking into account cost, environmenta factors, customary habits of the caseoad and avaiabiity. G. Water Situation Most of the viages in [country] are serviced by cean water. Some water trucking feets are ocay avaiabe as is the expertise to repair water systems. Trucking wi be used as a ast resort, but may be necessary at the transit centres where the site seection appears to be more probematic. Badder tanks for trucking and on site storage are required. Further study is required into the water reticuation and storage options as sites are identified. The Ministry of Pubic Works is responsibe for the domestic water sector. There are no NGOs invoved in the sector at present. Objectives/Standards/Needs 4 The provision of sufficient quantities and adequate quaity of drinking water according to UNHCR standards (15 itres per person per day in the emergency stage reaching 20 itres). 4 Endeavour to tap into existing oca suppies, otherwise deiveries through trucking and on site storage. Activities Activities By Whom By When Investigate the situation of water suppy in [country], the avaiabiity of expertise to rehabiitate systems, storage and trucking capacity. Negotiate potentia contracts and arrangements for trucking feets. If required procure systems from OXFAM or other suppiers for stockpiing If the infux is more substantia that anticipated initiate the mobiisation of water Government Service Packages. Identify potentia i ti t UNHCR UNHCR/NGO UNHCR UNHCR UNHCR Immediate On aert On aert On arriva Immediatey

51 impementing partners, ocay or through EPRS NGO database. Impement coordinated management of systems and monitoring. NGO On arriva H. Environmenta Sanitation Situation There is a basic sanitation and garbage coection system in the country. This may not be adequate to service settements depending on their size and ocation. Additiona measures wi therefore need to be introduced. This wi invove the digging of pit atrines and the provision of dedicated waste remova vehices. The Ministry of Pubic Works is responsibe for this sector and the municipaities are responsibe for garbage remova. Loca handing of garbage near sites may be required. There are no NGOs active in this sector at present. Objectives/Standards/Needs 4 Adequate sanitation faciities in a coective centres according to UNHCR standards. 4 Sanitary environment with the effective remova of garbage, vector contro and proper management of contaminated water. Activities Activities By Whom By When Investigate the avaiabiity of oca ministries, contractors, NGOs which might have the capacity to manage this sector. Mobiise NGO to estabish, manage, monitor and report on sector activities. UNHCR MSF (F) Red Cross Immediate On arriva I. Heath and Nutrition Situation It is not expected that the refugees wi arrive with serious heath probems and manutrition is not expected to be widespread. Hospitas avaiabe in [the Capita] and the regiona centres of [city] and [city] athough in the case of the atter the capacity and quaity of equipment may not be up to standard. The Ministry of Heath is responsibe for this sector and there are no NGOs active with UNHCR at

52 present. MSF (F) did work previousy in country with UNHCR and have indicated a preparedness to return at short notice if necessary. Objectives/Standards/Needs 4 Ensure that refugees with heath probems are detected on arriva. 4 Ensure minimum standards of heath care through the provision of preventative and emergency curative heath services, heath education (incuding water use, sanitation and environmenta management). 4 Ensure nutrition eves are satisfied according to UNHCR standards. Activities Activities By Whom By When Survey heath faciities in settement zones. Inventorise capacity, suppies, equipment. Identify immediate needs. Heath screening of refugees at transit points. Arrange with MOH the agreement to refer patients to oca hospitas and cinic and the arrangements for such referras. In centre heath care. UNHCR/MOH MOH/Red Cross UNHCR/NGOs/MOH MSF(F)/Red Cross/MOH UNICEF Immediate On arriva On aert On arriva and ongoing Immunisation UNICEF On arriva and ongoing Therapeutic feeding MSF(F)/Red Cross/UNICEF On arriva and ongoing Nutrition monitoring MSF(F)/Red Cross/UNICEF On arriva and ongoing Heath Education MSF(F)/Red Cross/UNICEF On arriva and ongoing Cod Chain Management and provision of drugs WHO/MOH/UNICEF NGOs On arriva and ongoing J. Community Services Situation In the current assistance programme for refugees and in the context of the genera humanitarian assistance programmes, there are a number of NGOs invoved with community services.

53 Objectives/Standards/Needs 4 To organise the refugee communities in such a way that they have a substantia input in the management of their own affairs and become invoved eary in sef hep activities 4 The specific needs of a vunerabe persons and groups are satisfied as are the reigious need of the community. Activities Activities By Whom By When Organise the refugees through the faciitation of the estabishment of community committees (Genera, Heath, sanitation, education & community services committees.) Undertake an assessment of community needs an community structures Provide guideines, arrange guardianship and monitor arrangements for unaccompanied minors. UNHCR/UNICEF/Red Cross NGOs UNHCR/Red Cross UNHCR On arriva On arriva On arriva K. Education Situation UNICEF are present in [country] and have been undertaking activities in this sector. The current caseoad of refugees are participating in the existing schoo system to the extent possibe. In case of a substantia infux it is unikey that this wi be possibe and separate arrangements wi need to be made. Objectives/Standards/Needs 4 Avoid the disruption to the chidren's education to the extent possibe 4 Provide a basic service through sef hep, with minima externa intervention, with the aim to ensure chidren are occupied rather than ido, whie providing some educationa instruction. Activities Activities By Whom By When Identify the appropriateness and eventua adaptation of UNESCO Emergency UNHCR On aert

54 Teaching Kits Identify, mobiise and organise teachers. Provide basic materias and suppies. UNICEF On arriva Faciitate recreationa activities UNICEF On arriva Chapter 4 Monitoring and Foow-up Monitoring achievement of tasks and actions wi be the responsibiity of UNHCR. However, a sub-group of the inter-agency group, consisting of UNHCR, CRS and the Refugee Coordinator wi meet frequenty to consut on the progress being made. The updated Pans wi be distributed by UNHCR to a concerned party and a amendments wi be incorporated into the Pan by UNHCR. In principe the Inter-Agency Group wi meet every 3 months to consider the eary warning signs, review the scenarios, to report on respective actions taken in the interim and adjust the Pan. The meeting can nevertheess be caed at short notice if events warrant. Acronyms Annex 1 CIVPOL CRS ECHO EDP FDP HDR ICRC IFRC MOH MOL MSF(F) MRE NFI NGO OSCE RCS WFP UNESCO UNICEF UNP USAID WHO United Nations Civiian Poice Contingent Cathoic Reief Services European Union Humanitarian Operation Extended Deivery Point Fina Deivery Point Humanitarian Daiy Ration Internationa Committee of the Red Cross Internationa Federation of Red Cross Societies Ministry of Heath Ministry of Labour Medecins Sans Frontiers (France) Meas Ready to Eat Non Food Item Non Governmenta Organisation Organisation for Security and Cooperation in Europe Red Cross Society (oca) Word Food Programme United Nations Education, Cutura & Socia Organisation United Nations Chidren's Fund United Nations Peacekeepers United States Internationa Assistance Department Word Heath Organisation

55 Annex 2 Agency Profie (to be competed by each agency) Agency: In country since Address Teephone Fax Current staff (indicate names and tite of key personne) Current Activities Future Capacities & Pans Annex 3 Agency Activity Matrix Sector Lead Agency Location comments

56 Management & Coordination Lead Agency Interagency Group Camp management UNHCR A (See Annex 4) To be decided Protection, Reception, Registration Protection Registration Refugee Safety Staff Security Arriva monitoring UNHCR IFRC/RCS Government UNPREDEP UNHCR/UN Peacekeepers Food & Nutrition Basic Food Purchase/Suppy Suppementary food Food transport in country End User distribution WFP UNHCR/NGOs CRS RCS RCS Logistics & Transport Commodity trucking Warehouse management Air head management Transport of refugees CRS CRS UN Peacekeepers RCS Sheter & Infrastructure Repair of coective centres Provision tents and Pastic Settement Panning To be identified UNHCR UNHCR Domestic Needs Provision NFIs Transport and Storage Distribution UNHCR CRS RCS Water Coordination & Monitoring NGO to be identified Sanitation Coordination & Management Upgrading Coective Centres Waste remova MSF/RCS NGO to be identified to be identified Heath & Nutrition

57 Screening Referras Preventive & Curative Nutrition monitoring Heath Education Drug Provision Therapeutic feeding MOH/RCS MOH MSF/RCS/MOH/UNICEF MSF/RCS/MOH/UNICEF MSF/RCS/MOH/UNICEF WHO/MOH/UNICEF MSF/RCS/MOH/UNICEF Community Services Coordinate UNHCR/UNICEF/RCS Education Coordinate UNICEF Annex 4 Members of the Interagency Group Prime Ministers Office (Refugee Coordinator) Ministry of Foreign Affairs Ministry of Defence The United Nations High Commissioner for Refugees (UNHCR) United Nations Peacekeepers Word Food Programme (WFP) UNDP (Humanitarian Affairs Coordinator) United Nations Chidren's Fund (UNICEF) Internationa Federation of Red Cross Societies (IFRC) Red Cross Society (RCS) European Union Humanitarian Operation (ECHO) United States Internationa Aid Department (USAID) Cathoic Reief Services (CRS) Equiibre

58 Annex 5 Commodity/Budget Matrix (12 Month Estimate) Sector Item Unit Cost (US$) Caseoad 200,000 Food Transport & Logistics Cereas 160/mt 5,760,000 Puses 200/mt 720,000 Oi 800/mt 1,800,000 Fish/Meat/Cheese 1,500/mt 9,040,000 Sugar 600/mt 1,080,000 Sat 300/mt 135,000 High Protein Biscuits/HDRs 1,200/mt 30,000 Corn Soya Bend (CSB) 450/mt 250,000 TOTAL 18,815,000 Externa Transport (food) 121/mt 4,617,360 ITSH (food) 60/mt 2,637,000 Externa Transport (NFI) 1,774,850 ITSH(NFI) 1,229,425 Transport for 150,00 persons 500,000 Vehice maintenance/repair 150,000 Rubb Has/Warehouse renta $15,000/500 tons 45,000

59 Sector Support/Management 250,000 TOTAL 11,203,635 Domestic Needs Bankets $7 per piece 4,095,000 Kitchen Sets 20 per set 1,000,000 Jerry Cans 1.85 per can 92,500 Seeping Mats 2.50 per mat 475,000 Cothing/shoes 20/set 3,800,000 Hygienic Kits 22/10pers./mth 5,016,000 Cooking/heating stoves 80 per unit 3,040,000 Kerosene 0.30 per itre 6,840,000 Kerosene Containers 1 per unit 40,000 Soap.15kg/p/mth/$687mt 190,000 TOTAL 24,588,500 Water Water system Devt. 86,000/10,000 pers. 1,720,000 Water Trucking 1,000,000 Sector Support/Mgt. 272,000 TOTAL 2,992,000 Sanitation Sanitary Faciities Constr. 1at/20pers/$100 1,000,000 Human waste Contro 40,000 Toos $11set/250pers. 8,800 Soid Waste Contro 40,000

60 Vector Contro 20,000 Sector Support/Mgt 217,760 TOTAL 1,326,560 Heath & Nutrition Heath Faciity Construct. 100,000 Emergency Medica Kits $4,150/10,000 pers. 103,750 Genera Heath Services $5,000/10,000pers. 125,000 Drugs & suppies $2.5/pers. 1,250,000 Immunisation 40,000 Sector Support/Mgt 161,875 TOTAL 1,780,625 Infrastructure Site Deveopment 800,000 Winterized Tents 200 per tent 8,000,000 Pastic sheeting 7.5 per famiy 250,000 Community Buiding repair 1,000,000 Genera Site Operations 100,000 Road/Bridge Repair 1,000,000 TOTAL 11,150,000 Community Services Community Devt. Serv. 100,000 TOTAL 75,000 Protection Registration/tracing 100,000

61 Registration Kits $11,000/30,000 pers 88,000 TOTAL 188,000 Op. Support Camp Management 200,000 Light Vehices 25, ,000 Support to Imp agencies 200,000 Communications 200,000 Office Equipment/Suppies 200,000 Computers with printers 4, ,000 UNHCR Staff Costs 1,500,000 TOTAL 2,650,000 GRAND TOTAL 74,769,320 NOTES: 1. Non Food items based on 190,00 persons 2. Whie budgeted here, WFP to cover funding and sourcing of Food and ITSH 3. Certain sectors to be impemented by other agencies or NGOs Annex E - Overhead Transparencies These overhead transparencies are indicative ony of the possibiities. Presentations through the use of transparencies shoud of course be imited so as to ensure active participation of a. Too many definitions and ists can be confusing and demotivating, thus they shoud be used sparingy and as a focus for further discussion. Faciitators shoud fee free to use their own transparencies and other training techniques with which they are comfortabe.

62 Annex F - Additiona Reading Chairing and Faciitating Meetings (TRS3) 1990 Community Services Manuas (Revised) 1996 Distribution Guideines: A Practica Guide for Fied Staff 1996 Guideines for Effective Panning (Draft) 1996 Handbook for Emergencies 1982 Learning to Train - An Introduction to Training Skis (TRS1) 1990 Memorandum of Understanding between UNHCR and WFP 1996 Memorandum of Understanding between UNHCR and UNICEF 1996 Needs and Resources Assessment: A Practica Guide 1996 PARinAC Oso Decaration and Pan of Action 1994 Partnership: A UNHCR Handbook for Impementing Partners 1996 Registration Guideines: A Practica guide for Fied Staff 1994 UNHCR and NGOs: Directory of Non Governmenta Organisations 1996 A these pubications are pubished by UNHCR and if not avaiabe in UNHCR Country Offices, can be requested from UNHCR Headquarters at Geneva.