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Program Review Report – New Directions in Emergency Response

Contents

Introduction and background

In 1996 Oxfam Australia introduced a regular program of reviews of the major regional and functional areas of the agency's Overseas and Indigenous Australia Program. It is expected these Reviews will be conducted as a five year rolling program and will set the strategic direction for that part of the program. The outcomes of the reviews will also 'feed-up' and inform the strategic planning process of the agency more broadly and provide a opportunity for it to be informed by our field work in a more formal way. The first of this program of reviews was carried out in 1997 for the Emergencies Response work of the agency. This arose as the Emergencies Desk had only recently been established but there were still issues around method of operation to be finalised so it was thought that a review of the previous work and what other agencies were doing might inform the direction the agency should take. This report is a summary of that Review process and its outcomes.

Oxfam Australia has historically been involved in responding to disasters and emergencies in addition to its ongoing long-term development work. It is an independent community-based organisation committed to poverty alleviation and the promotion of social justice. As such, it recognises that its philosophy of fostering people-focused development in vulnerable and needy communities needs to be augmented by a capacity to respond to natural and human-induced crises which threaten those communities.

Oxfam Australia and the Australian Freedom From Hunger Campaign, with whom it merged, have had a disaster response capacity virtually since their inception in the early 1960s. They were involved in countries affected by conflict such as Cambodia, Eritrea, and Ethiopia; and natural catastrophes such as Bangladesh. Using government funding, and its own general support and special appeal funds, Oxfam Australia not only contributed to projects managed by local partners or other Oxfams, but also embarked on providing logistics, transport, procurement, and staffing for significant emergency/rehabilitation assistance and "rapid response" programs (e.g. water-drilling, health), particularly in civil conflict situations (Horn of Africa, Mozambique). This dimension of Oxfam Australia activity was formalised with the establishment in 1987 of the Disasters Response Unit.

The FFH/Oxfam Community Aid Abroad merger in 1992 enabled a broadening of the geographic reach of the agency's emergency response, and an increased focus on responding to the aftermath of natural disasters. For reasons of capacity and policy Oxfam Australia discontinued operational emergency programs between 1989 and 1993 but maintained its commitment to emergency relief, not only by contributing funds to other agencies' relief initiatives but also by its own direct support of water and agricultural rehabilitation. The focus was largely on the sectors of Oxfam Australia particular expertise, namely water, food and public health. Oxfam Australia has long co-operated with other development and relief agencies, both Australian and overseas. This co-operation was boosted, and its on-going relationship with the Oxfam family of agencies were formalised when Oxfam Australia became a founding member of Oxfam International in 1994.

In recent years, there have been moves to increase co-ordination and co-operation among Oxfams around the globe. This process of "harmonisation", the alignment of philosophies, policies, procedures and operations has also occurred in the area of Emergencies. The first Oxfams Emergencies Workshop, in Oxford in March 1995, was a milestone in the harmonisation of Oxfams' emergency responses. Whilst recognising the variety of member agencies' operational and philosophical similarities and differences, the workshop presented an invaluable opportunity to develop mutual interests and capitalise on the diversity of approaches that is a primary strength of the Oxfam network.

The Oxfam harmonisation for emergency response recognises that Oxfam Great Britain is the Oxfam with most expertise in disaster response in the crisis phase of an emergency. Some other Oxfams [e.g. Hong Kong, Québec, Intermón (Spain)] have some limited disaster response capacity, but have not been operational in the crisis phase. Although Oxfam Australia has also not been directly operational in disaster crises for some time, it has been focusing on rehabilitation work and is well placed to provide material inputs into crisis intervention by operational Oxfams.

In early 1996, Oxfam Australia initiated discussions with Oxfam GB on capacity building for disasters response, acknowledging that the Oxfam family's operational capacity needed to be developed to enhance its humanitarian response capability. This theme was raised at the second Oxfams Emergencies Workshop held in Brussels in May 1996.

An extensive Oxfam Australia review and restructuring was completed in mid-1996 and resulted in the development of an Emergencies Desk as part of the Overseas and Indigenous Australia Program. It was asked to focus specifically on operations and advocacy in the emergency phases of large disasters. Oxfam Australia's country desks and field Offices would maintain responsibility for "small emergencies" (affecting less than 50,000 people) and rehabilitation, disaster mitigation, and preparedness.

Another important outcome of the Oxfam Australia review was an agreement to seek expert staff from Oxfam GB to review Oxfam Australia's capacity to become more operational in emergencies. This was seen as a practical harmonisation initiative, aimed at enhancing the Oxfams' global emergency response capacity.

Review of Oxfam Australia's Emergency Response Capacity

The goal of the review was to examine the feasibility of the Oxfam Australia Strategic Plan objective to "respond to humanitarian needs, as possible", an important activity being to "develop an operational capacity within the Emergencies Desk". This would be done by making recommendations:

The assessment involved a four week secondment to Oxfam Australia of two Oxfam GB emergency strategic planners to work in close collaboration with the Emergencies Program Manager. It relied on extensive discussions with staff of the OIAP Section, key staff from other sections, plus input from consultations with Oxfam Australia community base, funding agencies (government and UN), training agencies and other Australian NGOs. The consultation included workshops to present and discuss options and conclusions with OIAP staff feedback to other relevant areas within Oxfam Australia. The process was overseen and assisted by a Critical Reference Group comprising the OIAP Director and the other managers of the Section.

The assessment commenced with an examination of the existing operation of the emergencies desk and its three key roles of providing:

  1. Information: to provide timely and appropriate information on emergencies for both Oxfam Australia's work and the Oxfam's emergency network global response, in the areas of Country Programs, Marketing, Communications and Advocacy;
  2. Expertise: to provide resident knowledge, expertise and advice on technical, program and funding aspects of all phases of disaster response including the capacity to appraise, monitor, and evaluate disaster response projects;
  3. Humanitarian response: to provide additional capacity to undertake emergency responses, through local partners, other Oxfams, or operationally in Oxfam Australia's own right, in countries where it currently has country programs and those where other Oxfams work, thereby enhancing the overall Oxfam network in emergencies.

The assessment team task was to recommend on how this might be accomplished; options for the nature of emergency work envisaged; and any structural changes required within Oxfam Australia. The assessment then proceeded with an examination of various possible models acknowledging that the current co-ordination model for harmonising Oxfam's emergency response may change in the longer term.

The assessment was informed by the five principles agreed by the Oxfams for emergency response and that is any work must focus on:

  1. Saving human lives
  2. Protection against violence
  3. Improvement of health
  4. Local participation/local capacity
  5. Work towards structural development

In addition the inclusion of principles of using local and participation leading to long term development should never be at the expense of the achievement of the first three principles. The assessment sought to define the range of possible emergency responses, from purely funding of another agency's program, through a gradation of levels of operational involvement in addition to funding (technical advice, capacity building, partial operational involvement) to full operationality, i.e. primary carriage of a program. It also looked at the factors informing the choice of style of a response, including availability and accessibility of appropriate skills, access to target group, the agency's capacity (skills, resources), degree of obligation towards those affected, and security.

The question of performing emergency work through local partners was examined. The limitations as well as benefits of local partners were discussed, recognising that, whilst a good emergency response should complement local efforts, it should not ignore constraints imposed by factors such as partners' involvement in a conflict, shortages in skills and resource limitations. The emphasis should be on reinforcing community spirit and involvement and the use of partners' local knowledge and contacts. Inputs of additional resources, non-funding support and personnel will help strengthen partner capacity to resume normal operation in the post-disaster phase.

Emergency assessment and monitoring were recognised by the assessment team as key elements in emergency response formulation. It emphasised the importance of analysis of the socio-political context in which a disaster has occurred and how it has caused or contributed to the vulnerabilities of people affected. It was acknowledged that this may require technical skills additional to those possessed by local NGO partners, and hence reliance on specialist input from an external team.

The assessment sought to define the role of the Oxfam Australia emergency desk in emergency response and the stage(s) at which it aims to be involved, in the context of a consideration of the root causes, impacts and phases of emergencies. The link between the level of development and political stability in a country and its vulnerability to disasters was recognised. Therefore the vital role of humanitarian relief as a foundation for long-term development is an important reason for the continuation of development assistance beyond the emergency phase. Hence it was seen as important that the emergency desk and the country desk staff of Oxfam Australia agree on a transition from the emergency to the rehabilitation phases to ensure the continuity and effectiveness of any follow-up work.

The assessment team saw the need for people involved in emergency and development programming to be clear on the process of moving from emergency programming to long term development work, as a prerequisite to strengthening Oxfam Australia's overall emergency capacity. Issues of funding and advocacy were also explored in the assessment including the importance of adequate budget allocations for emergency responses was recognised. Advocacy around emergencies was seen as a means of enhancing Oxfam Australia's profile and leverage with governmental and multilateral partners to 'scale up' the emergency response and hence the agency's capacity. The marketing dimension was also considered, in terms of the vital role of fundraising appeals in fostering public awareness of emergencies and their future involvement in Oxfam Australia work.

The assessment team sought to identify a range of components, which could be combined or omitted as required, allowing the flexibility to create building blocks for an emergency response. Three broad classes of models were identified:

Direct response models: ranging from the most comprehensive in which Oxfam Australia would be fully operational in any possible country and in all possible sectors and support functions (i.e. funding, policy/research), through to a reduced version such as excluding support functions, to single focus models concentrating on one emergency or sector at a time (these more restricted models may serve as intermediate stages towards other operational models);

Service models in which a reactive rather than proactive role for the emergency desk was envisaged in it would respond to the needs of countries and other Oxfams by providing one or more of a range of services, including funding, assessment, research/policy work, advocacy, emergency staff recruitment etc;

Regional model which would be essentially a multi-sectoral approach for one region. This would mostly limit operational emergency responses to the region where a given Oxfam is the lead agency, e.g., in Oxfam Australia's case this would the Asia-Pacific region, while responses to emergencies in other regions could take the form of funding and/or personnel support to other Oxfams.

Other options of maintaining the status quo or disbanding the emergencies desk and integrating its staff and functions into the regional clusters were also considered. In addition to the major options for a way forward the need for training was also looked at in the assessment, with an emphasis on the need for all Oxfam Australia desk and field office staff, and project partners, to possess a good understanding of emergencies. Specific training of staff on emergency preparedness and its integration into capacity building and strengthening of communities was also looked at.

In developing options for Oxfam Australia's future emergency work, the assessment team sought to define the broad parameters of a possible model, the procedures and structures for implementation, and the institutional arrangements and methodology required. The assessment pointed to the need for a closer relationship between the emergencies desk and the country desks of Oxfam Australia, and an agreement on 'ownership' of the emergency program and its position in relation to the development cycle.

The limitations of the existing programming arrangements whereby both emergencies staff and country program staff were involved were to do with inherently difficult issues of demarcation and ownership thrown up by emergencies of differing scales. Big emergencies were managed by the emergencies desk while rehabilitation activities and smaller emergencies were managed by the country programs concerned. The assessment came down in favour of a 'one program approach'. This would involve all emergency and developmental work within a geographical area being managed by the appropriate country program area with the emergencies desk assuming operational management in large scale emergencies, but performing an "additionality" role, in terms of providing financial, advisory, and training support in smaller emergencies.

Assessment recommendations – Building Blocks for a new Emergency Response Model

A comprehensive set of recommendations was proposed at the conclusion of the assessment as a means of guiding Oxfam Australia towards a redefinition of the emergency desk's role and functions. The aim was to providing the basis for a framework within which the organisation could develop its own distinctive approach to emergencies. These were considered by the Critical Reference Group which made recommendations to Oxfam Australia management and Board.

The Critical Reference Group endorsed the recommendations and the "building block" approach to emergency response model development and expressed its support for a model which would include the following elements:

Emergencies owned by Country Desks, with the emergency desk having a service function

The country desks of Oxfam Australia should be responsible for all programs in their geographical area and emergencies work should be factored into their country or regional strategic plans. The emergencies desk would assume an advisory, appraisal and auditing role over standards for emergency programs, and would be included in discussions in the program areas to enabling the provision of advice on small emergencies.

Capacity building of Oxfam Australia's partners, field offices, and program staff

The importance of strengthening the capacity of communities to deal with local emergencies highlights the need for emergency preparedness programs to be developed with partners and the importance of providing specialised training in areas such as food security and public health. The assessment also highlighted the need for Oxfam Australia to enhance the operational capacity of its partners and field offices in emergencies, either through its own resourcing or in conjunction with other Oxfams, (e.g. with funding and personnel assistance from OxfamGB). In order to so there is a need to enhance Oxfam Australia own training capacity.

Disaster preparedness, mitigation, and response through Country Desks

It was agreed that resources and training should be provided for this purpose with an initial focus on Asia/Pacific for disaster preparedness. It was also agreed that as a means of gaining operational experience and credibility, a single focus geographical approach should be piloted. This would enable the emergency desk to develop operationality by assuming management of a large-scale emergency response in the region, in conjunction with the regional desk. This may use of a range of emergency responses in Oxfam Australia Country Program countries in which the emergencies desk's role would be to provide additional resources (funds, expertise, etc.)

Reactive response to large-scale emergencies on basis of global need, priorities

The needs and emergency response practicalities of large scale emergencies need to be assessed and prioritised. Fulfilling the humanitarian mandate should not be hampered by the concept of 'out of area' (an area where we cannot respond), but there is the practicality of responding effectively in some areas, due among other things to access, remoteness or lack of local contacts.

Specialisation in the area of public health in emergencies

At least as an interim phase in the progression towards other models, there is merit in Oxfam Australia focusing its emergency responses on the area in which it has greatest expertise, namely public health (including water/food supply and nutrition, sanitation, vector control, health education, hygiene, environmental health, mental health, immunisation, preventive/curative services).

Creation of a Catastrophe Fund for Country Desks' response to emergencies in program countries

The assessment recommended the establishment of a special fund managed by the Emergencies Desk but accessible to the Regional Desks to enable them to respond to small-scale emergencies affecting their project partners.

Creation of a register of expert personnel for field deployment to assist Oxfam Australia and its partners in emergency response

The assessment identified the development of a skills register as the most effective means of accessing health and technical expertise for emergency response. The Registered Engineers for Disaster Relief (RedR) an NGO which provides specialist staff for UNHCR operations, is an example of this type of approach. An Oxfam Australia register would be for professionals in the area that Oxfam Australia would be working in and so would differ from and complement existing registers.

The issue of whether Oxfam Australia was operational was not seen to be of paramount concern, but rather emphasised the importance of maximising the additional capacity which the organisation could offer its personnel, field offices, partners and other Oxfams in responding appropriately and rapidly to the vast diversity of emergencies which arise globally. The need was identified for further work in a number of key areas, including:

The Critical Reference group did not support the recommendation that Oxfam Australia should aim for neutrality in its humanitarian responses. It took the view that Oxfam Australia 's commitment to justice and equity necessitates the inclusion of political considerations in emergency response assessments. The Red Cross and NGO Code of Conduct to which Oxfam Australia is a signatory stipulates that NGOs be impartial in their response. This was seen as being different to being politically neutral.

A New Model for Oxfam Australia Emergency Response

The emergency response model which has been developed in light of the assessment is very much along the lines of the directions envisaged, and priorities identified by the assessment team, and reflects the diversity of Oxfam Australia's operations in Australia and globally through the Oxfam International network.

The model can be conceptualised as a triangular framework linking three key elements:

The model recognises Oxfam Australia's distinctive competence in emergency response, namely the combination of unique factors which contribute to the agency's capacity to develop its strength in the delivery of emergency responses. Oxfam Australia has a long history of commitment to social change, and of implementing programs linking relief and 'development, and emphasising community participation. The political stances adopted by Oxfam Australia on development and emergency issues give the agency a high-profile advocacy role which is central to its multifaceted approach to its development.

Australia's climate and geography have much in common with the regions in which we work hence the particular value of Australian technical expertise (e.g. in water engineering) which can draw upon. In addition Australia's multicultural society provides a pool of professionals from diverse backgrounds which is invaluable for Oxfam Australia in designing culturally sensitive and relevant emergency responses.

Oxfam Australia's long association with and linkages in the Asia-Pacific region provide scope for partnerships in emergencies which involve other NGOs in the region such Oxfam Hong Kong and Oxfam New Zealand. Oxfam Australia is also able to benefit from the expertise of other Oxfams operational in emergencies, e.g. Oxfam GB, and contribute to Oxfam International's approaches to emergencies.

Local Capacity Building

In advance of any disaster, capacity building of partners and Oxfam Australia staff and field offices is crucial to maximising the effectiveness of emergency responses. As a first step a pilot project in the Asia/Pacific region would entail the development of a training program for all stakeholders, in conjunction with country preparedness planning to identify local capacity. Specific disaster preparedness and mitigation is to be integrated into Country Desks' strategic planning and activity implementation. The shift to a 'one program approach' gives control and ownership to Country Desks of emergency responses, with the emergency desk operating as a service entity for the Desks and the Program Section overall. It would provide additional resources for proposal writing, monitoring and evaluation, and, in Country Desk program areas for assisting partners/field offices to 'scale up' emergency responses.

Operational Response Capacity

As priority Oxfam Australia's emergency responses focuses on countries where it has Country programs or partnerships, with a 'catastrophe fund' managed by the emergency desk to enable small-scale emergency responses. In addition Oxfam Australia will also respond to large-scale emergencies on a reactive basis, using the emergency desk's standby operational capacity and existing emergencies program criteria. The Program Director's direct responsibility for areas outside existing program areas ensures coverage of areas outside Oxfam Australia programs.

The development of the emergencies desk standby capacity will be enhanced in the course of responding to large scale emergencies. This will in turn lead to a diversification of models of operation in emergencies, from assisting partners, to acting in conjunction with other Oxfam's, to operating alone, depending on the dictates of different types of emergencies and geographic locations.

Oxfam Australia will focus on its "niche" area of water and public health, drawing on its historical expertise, and providing valuable 'input into the Oxfam emergencies network as a participant. A register of expert personnel for deployment in the field for use by Oxfam Australia, partners and other Oxfams is of key importance to enhancing emergency response capacity.

Advocacy is a Central part of the operational response capacity as well as to Oxfam Australia's commitment to social change. Advocacy serves not only to publicise an actual emergency, but also to highlight the underlying causes of emergencies and to propose strategies to address these causes. A key role of advocacy is to develop and propagate a critical overview and appraisal of governmental and non-governmental agencies' emergency responses. Oxfam Australia relies on advocacy as a means of spearheading the push towards enhancing the quality of relief initiatives. It is for this reason that an advocacy component will be built into all large scale emergency responses.