Professional Documents
Culture Documents
Humanitarian corridor
This is a mechanism for humanitarian actors to obtain access
to populations in need for exclusively humanitarian purposes
during active fghting. Humanitarian corridors consist of spe-
cifc designated routes involving the agreement of all relevant
parties to allow the safe passage of humanitarian goods and/
or people from one point to another in an area of active fght-
ing. In addition to the geographic dimension, humanitarian
corridors may be agreed to for a specifc period of time.
De-confiction arrangements
This entails liaison between humanitarian actors and parties
to confict to communicate the time and locations of relief
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activities in order to ensure that military operations do not
jeopardize the lives of humanitarian personnel, impede the
passage of relief supplies or implementation of humanitarian
activities, or endanger benefciaries.
Days of tranquility
This mechanism has been used primarily by UNICEF, often in
collaboration with WHO, in order to enable children to have
access to health care during confict, for example to under-
take national immunization campaigns, or other exclusively
humanitarian activities. Days of tranquility require the
agreement of all relevant parties to grant access to and not
interfere with the work of medical and other personnel during
the designated days.
5.3 Bureaucratic constraints affecting
humanitarian access
I Pathways for humanitarian access
PROXIMATE
FACTORS
>> Individual offcials obstructing movement or insisting
on overly-bureaucratic procedures
>> Arbitrary changes in procedures at local level
>> Political decisions over-ruling laws/procedures
>> Case-by-case denial of entry/exit visas for humanitarian
personnel
INTERMEDIATE
FACTORS
>> Lack of clear relationships between government institu-
tions at national level and local government institutions
>> Differing political allegiances at national- and local
levels
>> Lack of institutional capacity at regional or local level to
process/issue certain documentation
>> Absence of technical criteria for registration of humani-
tarian organizations
UNDERLYING
FACTORS
>> Limited institutional capacity of the national authorities
at national and local levels
>> Lack of existing institutional procedures, for example
for registration of humanitarian organizations
>> Lack of political commitment at national level to facili-
tate work of humanitarian organizations
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III Option generation
Factor Option(s) and possible alternatives
Limited institutional
capacity
>> Share experience of procedures and systems to facili-
tate the work of humanitarian organizations which have
been used in other contexts.
Limited commu-
nication between
central- and local
level authorities
>> Identify key interlocutors at national- and local levels
and make connections between them on actions to be
taken to ensure effective humanitarian access; For exam-
ple, in some circumstances this may involve securing cop-
ies of national-level procedures and documentation and
providing those if required to local-level authorities.
Denial of visas for
humanitarian person-
nel to enter the
country
>> Engage with national authorities within Ministry of For-
eign Affairs or equivalent to (i) clarify procedures and pro-
cessing times for visa issuance; (ii) issue multiple-entry visas
to humanitarian personnel; (iii) identify actions to be taken
if visa issuance delayed (e.g., temporary travel permits);
and (iv) to establish procedures for urgent issuance of visas
in exceptional circumstances (e.g., entry visa on arrival).
5.4 Obstruction of humanitarian access
This issue focuses on types of obstruction of humanitarian access other than through
bureaucratic impediments (addressed in Section 5.3 above).
I Pathways for humanitarian access
PROXIMATE FACTORS >> Imposition of curfews in local areas; blockage of key
access routes
>> Physical intimidation of humanitarian personnel
>> Obstruction of vehicles at roadblocks
>> Delays in customs clearance.
INTERMEDIATE
FACTORS
>> Refusal by military actors to facilitate humanitarian
access to particular geographical regions
>> Imposition of conditions intended to obstruct access
such as demands by parties to armed confict to humani-
tarian supplies
>> Imposition of fight or vehicle movement restrictions
>> Arbitrary holding of humanitarian supplies at entry
ports/airports
>> Lack of clarity within humanitarian organizations of
how to approach situations of obstruction.
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UNDERLYING
FACTORS
>> Systemic lack of awareness by parties to armed con-
fict about their duties and obligations concerning access
>> Lack of ownership of norms, for example by non-State
armed groups
>> Systemic prioritization of the military imperative over
all other considerations
>> Desire by parties to armed confict not to have
external actors witness the effects of military operations,
particularly on civilians
>> Assertion of state sovereignty in a manner intended to
limit involvement of foreign humanitarian organizations in
delivery of assistance.
CASE EXAMPLE: In the face of obstruction of access in
Myanmar, a focus on sustained dialogue, doing what is
possible, and maintaining humanitarian independence.
Beginning in 2006, the State Peace and Development Council
(SPDC) of the Government of Myanmar took measures, the
effect of which was to curtail humanitarian access in certain
parts of the country.
This action included the issuance of guidelines concerning the
operations of United Nations and international non-govern-
mental organizations. The guidelines required organizations
to coordinate with the SPDC and further required approval by
the Council of operations and staffng decisions.
The restrictions remained in effect as of early 2010. The ICRC
and others could not move independently and hence delivery
of humanitarian assistance, including to confict-affected
areas, was not possible.
The ICRC continued its activities in areas where it was possible
to work, such as in technical and training support, and contin-
ued with its efforts to engage the authorities in a dialogue on
humanitarian issues.
40
40
International Committee of the Red Cross (ICRC), ICRC Annual Report 2009 (Geneva: ICRC, May 2010).
80
Ultimately, the insistence by the SPDC on strict guidelines
governing access forced organizations to choose the alterna-
tive of not operating in those areas rather than agreeing to
conditions that would compromise principles of humanity and
operational independence.
Some organizations engaged in active humanitarian advocacy
to ensure access, while others sought to continue more
limited operations from bases in neighboring countries.
III Option generation
Factor Option(s) and possible alternatives
Lack of clarity within
humanitarian organi-
zations about how to
approach situations
of obstruction
>> Work within the organization and with other humani-
tarian organizations operating in the same context to
agree a set of procedures for dealing with situations of
obstruction. This could include common agreement on
non-interference in recruitment of national staff members
or national partner organizations; decisions regarding
coordinated approach to nonpayment of any forms of
taxation.
Blockage of key
access routes
>> If obstruction of key access routes by parties to armed
confict is based on military imperative, negotiate times for
ensuring that the routes are accessible (restrictions by par-
ties to armed confict can only be temporary) or negotiate
access by other modes (air/sea).
Obstruction of
vehicles at roadblocks
>> If a systematic pattern of obstruction, enter into
negotiations at senior level with relevant parties to armed
confict; Seek agreement to facilitate access and (i) secure
written commitment that can then be presented at road-
blocks; and (ii) secure commitment to have agreements on
access communicated to local-level military commanders
>> Identify, in advance of passage, points of contact
within armed forces/groups with whom to communicate in
the event of spontaneous obstruction at roadblock.
Desire by parties to
armed confict not
to have witnesses to
possible effects of
military operations
>> Emphasize to the parties to armed confict the primary
humanitarian imperative of the organization and the role
of the organization in working to alleviate suffering of all
people. Clarify the role of the humanitarian organization
and its position vis--vis interaction with any accountability
mechanisms (such as international criminal accountability
entities).
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5.5 Targeting of humanitarian personnel
and goods/assets
I Pathways for humanitarian access
PROXIMATE FACTORS >> Precautionary or reactionary withdrawal of humanitar-
ian personnel based on security assessment or security
incidents
>> Lack of ability of humanitarian personnel to travel in
particular areas.
INTERMEDIATE
FACTORS
>> Targeting of humanitarian personnel and goods/assets
if they do not agree to certain conditions, such as pay-
ment of taxes or fees
>> Targeting of humanitarian personnel who may be
perceived as promoting particular religious views
>> Inadequate and/or ineffective security management
policies on the part of humanitarian organizations (e.g.,
not objectively balancing humanitarian beneft and secu-
rity risk; not based on objective criteria)
>> A conservative approach to humanitarian security
devoid of considerations of potential program beneft;
lack of organizational presence which could build trust
and demonstrate intent in a particular desired area of
operation.
UNDERLYING FAC-
TORS
>> Ideological opposition to the work or ethos of hu-
manitarian organizations
>> Perceptions of humanitarian organizations as being
aligned with certain political actors
>> Economic motives underlying the actions of parties to
armed confict.
III Option generation
Factor Option(s) and possible alternatives
Lack of organiza-
tional presence which
could build trust and
demonstrate intent
>> When planning humanitarian activities, plan for
sustained presence and build relationships accordingly
in the planned areas of operation. Avoid parachute
interventions where humaniarian activities are undertaken
without good understanding of the humanitarian needs,
the political dynamics and the infuential actors in the
area(s).
82
Lack of ability of
humanitarian
personnel to travel in
particular areas.
>> Consider use of military escorts in line with normative
framework and humanitarian policies; This could include
assessment of whether potential threat(s) are economi-
cally (e.g., through banditry) or politically (e.g., through
intentional targeting of humanitarian workers) motivated.
If motivations of groups that may target humanitarian con-
voys/persons are deemed to be purely economic, then the
use of military escorts may not adversely affect perception
of humanitarian organizations neutrality.
Inadequate and/or
ineffective
humanitarian security
policies
>> Employ risk management techniques that not only fac-
tor in humanitarian security concerns but that objectively
balance these concerns and possible threats with potential
humanitarian beneft of particular operations.
Humanitarian person-
nel who may be per-
ceived as promoting
particular religious
views
>> Demonstrate frst and foremost by actions, but also
through documents/publications, that the humanitarian
organization does not promote any particular religious or
other values. Point to other situations or contexts where
the organization has worked successfully across communi-
ties.
Perceptions of
humanitarian or-
ganizations as being
aligned with certain
political actors
>> Demonstrate in statements and actions the humani-
tarian neutrality of the organizations. Identify sources of
funding in a transparent manner when required.
>> Humanitarian organizations cannot agree to politi-
cally-motivated or other operational restrictions to their
humanitarian activities that may be imposed by donors.
83
6. Dilemmas of
humanitarian access
6.1 Overview
Humanitarian organizations are often faced with diffcult choices between different
courses of action to secure and sustain humanitarian access, each one of which will
have its advantages and disadvantages, and none of which may immediately present
itself as the best option. Often the available courses of action are far from ideal. These
are dilemmas of humanitarian access.
This section suggests approaches and guidance for practitioners in considering the most
appropriate course of action when faced with a particular dilemma of access.
Just as the overall approach to humanitarian access is guided by core humanitarian
principles and the normative framework, so too dilemmas of humanitarian access are
considered based on the core principles and the normative framework.
6.2 Dealing with dilemmas of
humanitarian access
Dilemmas of humanitarian access can be considered in three categories: dilemmas of
principle, institutional dilemmas and operational dilemmas. Some dilemmas may be
refected in each of these categories. Examples of dilemmas of each type include:
DILEMMAS OF PRINCIPLE: In the case of integrated U.N.-mandated peace opera-
tions/missions, how to maintain and demonstrate humanitarian neutrality while
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operating in an integrated mission environment | Maintaining operational inde-
pendence in the face of strong political pressures.
INSTITUTIONAL DILEMMAS: How to operate within the parameters of organi-
zational rules and procedures on safety and security of humanitarian personnel
while working to secure and sustain access | Choosing how the organization
will coordinate with other humanitarian actors in working to secure and sustain
access.
OPERATIONAL DILEMMAS: Securing and sustaining humanitarian access in the
face of demands by parties to armed confict or other actors for payment or in
kind benefts.
Some of the characteristics of dilemmas of humanitarian access, which have practical
implications for how to work through these dilemmas, include:
Dilemmas of humanitarian access are often presented in real time and require
rapid decision making
There are no fx all solutions to dilemmas of humanitarian access as the parties,
conditions etc. involved often changes for each dilemma
The stakes are high. The course of action in these dilemmas can signifcantly affect
humanitarian objectives and outcomes
Approaches to some dilemmas may afford short-term benefts but long-term
disadvantages.
These categories and characteristics help to determine how to work through these
dilemmas. One of the most signifcant challenges in dealing with dilemmas of humani-
tarian access is that when practitioners work through a dilemma and choose a course
of action, often the action/outcome is recorded but the way in which the dilemma was
resolved (the process and tools used) is often not recorded.
85
CASE EXAMPLE: Dealing with dilemmas of humanitarian
access during the confict in the former Yugoslavia
(1992 1995)
41
Humanitarian organizations faced signifcant dilemmas when
operating in the former Yugoslavia during the various conficts
between 1992 and 1995. Examples of the types of dilemma
included:
Dilemmas associated with decisions on how rigidly to
adhere to humanitarian principles, and potentially by do-
ing so limiting humanitarian assistance in the short-term,
in an environment where humanitarian norms were
being fouted by parties to the confict [DILEMMA OF
PRINCIPLE]
Providing assistance (for example, by UNHCR) to groups
when it was known that they were not the ones who
needed it most, in the hope that this assistance would
improve broader access and that some of the assistance
would trickle down to those who were most in need
of assistance [DILEMMA OF PRINCIPLE, OPERATIONAL
DILEMMA]
Accepting military and/or political conditionalities as part
of an agreement reached during humanitarian negotia-
tions. For example, there were several instances when
UNHCR and other organizations were deemed to have
accepted military and political conditionalities when they
believed this would assist in securing humanitarian ac-
cess [DILEMMA OF PRINCIPLE, OPERATIONAL DILEMMA]
In the case of the former Yugoslavia and in many other cases,
such dilemmas have been made more acute by humanitar-
ian principles and norms being subordinated by political
interests and pressures and by policy gap, whereby actions
of humanitarian organizations/personnel are out of step with
existing humanitarian policy.
41
This case example reflects the analyses presented in several documents on the situation in the former Yugosla-
via and in Bosnia in particular during 1992 - 1995. See, for example: Kirsten Young, UNHCR and ICRC in the
former Yugoslavia: Bosnia-Herzegovina, International Review of the Red Cross and Red Crescent, Vol. 83 No
843 (September 2001); Mark Cutts, The Humanitarian Operation in Bosnia, 1992-95: Dilemmas of Negotiating
Humanitarian Access (Geneva: United Nations High Commissioner for Refugees, May 1999).
86
The following actions can assist in working through dilemmas of humanitarian access:
1. Use humanitarian principles and the normative framework to guide decisions;
Eliminate courses of action that may run counter to humanitarian principles and pro-
visions of international law pertaining to humanitarian access [esp. for DILEMMAS
OF PRINCIPLE].
2. Adhere rigorously to a (humanitarian) principled approach when implement-
ing decisions and strategies concerning humanitarian access. Rather than vaguely
quoting humanitarian principles, interpret what the principles mean in the particular
situation and use this to formulate and communicate a principled approach.
3. Balance potential short-term gain against longer term- or global consequences
(esp. for OPERATIONAL DILEMMAS]. For example, does agreeing to providing 10
percent of the food consignments at an armed group checkpoint, with a view to
securing immediate access to those in urgent need of assistance, compromise the
humanitarian character of the operation and encourage such rent-taking on a
wider scale?
4. Involve peers (within or across organizations) in working through the dilemma.
Brainstorm with colleagues on the merits of the various courses of action, and on
possible alternative approaches [brainstorming within the organization particularly
useful for INSTITUTIONAL dilemmas].
5. Use decision-making tools for example, ranking of choices or using a decision
path to structure and provide a record of how the dilemma was resolved (or al-
ternate course of action chosen). This also helps to ensure consistency within the
organization on how to approach certain dilemmas and provides a good starting
point for newly-recruited personnel.
6. Identify and use technical criteria which can provide a more objective basis for
decision making [esp. for OPERATIONAL DILEMMAS].
7. Identify precedents from the current context of other situations of armed con-
fict to compare how this dilemma was resolved by others, or in other contexts;
Precedents can be very helpful in substantiating the case for a particular course of
action.
7. Keep open alternate courses of action to secure and sustain access. This could
include, for example, operating through other humanitarian or commercial actors;
suspending humanitarian activities while engaging in humanitarian advocacy.
87
8. Communicate organizational decisions and policies on how to deal with dilem-
mas throughout the organization, especially to those at the operational level.
9. Be consistent, as much as possible, in interactions with parties to the confict or
other actors to avoid misunderstandings and miscommunication.
10. Ensure effective coordination among humanitarian actors; avoid situations where
the actions of one organization undermine other organizations.
In some instances, it may not be possible to resolve a dilemma of humanitarian access.
This may be due to a number of factors including, for example: lack of clear organiza-
tional policy that can inform the approach, differing and irreconcilable views within or
between organizations on how best to proceed, a lack of individual or organizational
willingness to address the dilemma head on for fear of exposing oneself/the organi-
zations to political pressures or sanction, slow decision making procedures which may
make it diffcult to respond in a timely way to emerging dilemmas, organizational cul-
ture, etc.
In these cases, practitioners should invest in exploring alternatives to humanitarian
access, some of which were identifed in Section 4.2.
The following sections provide guidance and suggested approaches on four frequently
encountered dilemmas of humanitarian access.
6.3 Humanitarian security and
humanitarian access
A common dilemma encountered by humanitarian practitioners is how to balance
humanitarian security risk with expected humanitarian beneft of a particular program
activity. This is especially true when organizational rules and procedures may appear to
limit opportunities to access those in need of assistance and protection.
For some humanitarian organizations, security rules and procedures can dictate a very
limited window for seeking and securing access. For example, humanitarian personnel
may be limited in their movements and security procedures may require military escorts
that may be in short supply and have limited personnel / capacity.
88
Guidance and options
Use risk assessment and risk management approaches and tools to generate a
more objective picture of the assessed (humanitarian) security risks and envisaged
humanitarian benefts
Learn more about how humanitarian security risk assessments are carried out. What
are the criteria used by those undertaking these assessments?
Consider likelihood and impact as two components of risk. Consider feasibility
and impact of different courses of action for securing and sustaining humanitarian
access
Identify other cases where particular humanitarian security risks have been mitigat-
ed, for example by building stronger relations with parties to armed confict operat-
ing in the area in which the population is to be accessed, or by negotiating security
guarantees.
Consider protective and deterrent measures (see case example below) to assist in
securing access and to reduce vulnerability to specifc security threats.
Box 5 Access in complex security environments that carry
high risk for humanitarians
In 2011, the U.N. Offce for the Coordination of Humanitar-
ian Affairs launched a study, designed for aid practitioners
and their organizations seeking practical solutions to gain,
maintain and increase secure access
42
The study highlighted seven categories of good practice for
securing and sustaining humanitarian access in high-risk
environments. Some of the key fndings and issues in each of
these categories are:
1. Active acceptance-based approaches: more active in-
vestment in acceptance strategies leads to better access
through improved negotiation and communication.
42
Jan Egeland, Adele Harmer and Abby Stoddard, To Stay and Deliver: Good Practice for Humanitarians in
Complex Security Environments (New York: U.N. Office for the Coordination of Humanitarian Affairs, February
2011).
89
2. Negotiating access: the greater an organizations
capacity to communicate and negotiate effectively with
all parties, the better access and security for humanitar-
ian personnel (relevant to Section 6.4 below).
3. Remote programming: good practice focuses on
strategic localization of operations, and highlighted
need to avoid risk transfer (e.g., to national staff).
4. Low-profle approaches: such approaches can include
de-branding (of vehicles and facilities etc.), blending
strategies (to blend with the local environment), and no
visibility approaches.
5. Protective measures: these measures focus on reducing
vulnerability to threats. They can include discreet protec-
tion measures (e.g., hidden wall/structural reinforce-
ments) and diplomatic/international enclaves with
restricted entry.
6. Deterrent measures: humanitarian organizations may
balance the use of armed security with other deterrents
such as suspension of operations; Community-based
policing has also been used in some contexts..
7. Security management, coordination and preparedness
6.4 Humanitarian negotiations to secure
and sustain access
Securing and sustaining humanitarian access in situations of armed confict generally
requires engagement with some or all parties to the confict as well as with other actors.
Although engagement with the parties to the confict can take many forms (liaison, ne-
gotiation, mediation, advocacy, etc.), humanitarian practitioners frequently need to ne-
gotiate with parties to the confict and other actors to secure humanitarian access.
Guidance on humanitarian negotiations, including with non-State armed groups, is
provided in the 2006 publication of the United Nations: Humanitarian Negotiations
with Armed Groups: A Manual for Practitioners.
43
The guidance in the publication was
43
United Nations, Humanitarian Negotiations with Armed Groups: A Manual for Practitioners (New York: United
Nations, January 2006) p 73. Available at: http://ochaonline.un.org/humanitariannegotiations/index.html
90
developed in collaboration with members of the Inter-Agency Standing Committee
(IASC).
Negotiations to secure and sustain humanitarian access present several dilemmas for
practitioners, among which two of the most acute are: (i) how to negotiate with non-
State armed groups in the face of political pressures; and (ii) how to maintain the in-
dependence of humanitarian negotiations (for access) distinctly separate from political
negotiations.
Guidance and options Negotiations with non-State armed groups
in the face of political pressures
The designation of some non-State armed groups as so-called terrorist groups by
States or international organizations, and the resulting uncertainty surrounding the lim-
its of humanitarian negotiations with these groups, has resulted in many humanitarian
organizations refusing to negotiate with non-State armed groups in certain contexts.
There is no universally-agreed upon defnition of terrorist group or individual in public
international law; There is a defnition of terror tactic. Existing humanitarian policy
guidance on humanitarian negotiations with non-State armed groups states that,
44
If negotiating with an armed group is deemed a humanitarian necessity, then the des-
ignation of that group as a terrorist group by some States or institutions should not
automatically preclude negotiations with the group. As with negotiations with all armed
groups, negotiations with those that employ terror tactics must focus solely on humani-
tarian issues
Moreover, the United Nations (including the General Assembly and the Security Council)
has identifed the need for humanitarian organizations to engage with all parties to
the confict for the purposes of securing access and for other humanitarian purposes.
45
However, the clear mandate (for humanitarians) to engage with all parties to the confict
under international law is not always upheld or respected in the domestic legislation of
States.
46
The effect of domestic laws that may criminalize contact- or engagement with non-State
armed groups that may use terror tactics or other designated individuals has been to
44
United Nations, Humanitarian Negotiations with Armed Groups: A Manual for Practitioners, p 73.
45
For example, in General Assembly resolution A/46/182 (1991) (see relevant provisions in Chapter 3 of this
Manual on normative framework): [The role of the Emergency Relief Coordinator includes ] actively facilita-
ting, including through negotiation if needed, the access by the operational organizations to emergency areas
for the rapid provision of emergency assistance by obtaining the consent of all parties concerned
46
For a discussion of the evolving policy and legal debate on this issue, see: Program on Humanitarian Policy and
Conflict Research (HPCR), Humanitarian Action under Scrutiny: Criminalizing Humanitarian Engagement, HPCR
Working Paper (Cambridge, MA: Harvard University, February 2011).
91
complicate the ability of humanitarian personnel to engage with these groups. In many
instances, the lack of clarity in whether humanitarian personnel can actually engage has
been enough to prevent engagement, based on a conservative approach.
Humanitarian organizations that are facing political pressures whether from the
host country government, donor States, or third parties to abstain from negotia-
tions with groups that may be considered by some States or international organiza-
tions as groups that employ terror tactics should communicate to the parties in-
volved the relevant provisions of international law and the existing humanitarian
policy guidance concerning humanitarian negotiations. Based on the humanitarian
imperative, humanitarian organizations can negotiate with all parties to armed con-
fict to secure humanitarian access.
Humanitarian organizations should seek to clarify the scope and provisions of
domestic legislation regarding engagement with certain groups in countries where
they are legally incorporated, registered or operating. Humanitarian organizations
may wish to avail of exemption procedures where they exist.
Humanitarian organizations should use precedents for engagement by humani-
tarian organizations with certain groups whether in the same or in different con-
texts to reinforce the mandate which exists under international law to engage
with all parties to armed confict. Examples of contexts in which there has been
engagement on the part of humanitarian organizations (directly or indirectly) with
groups that may be designated as terrorist groups by some States include: Leba-
non (2006), the Gaza Strip in the Occupied Palestinian Territories (various times
since 2005), Somalia (various times including during 2009), and Afghanistan (2008
2011).
Ultimately, humanitarian organizations will have to decide how assertive they wish
to be in adhering to the core humanitarian principles especially impartiality and op-
erational independence which preclude donors, third-party States or others from
dictating discriminatory usage of the humanitarian organizations resources.
Guidance and options Separating humanitarian negotiations on
access from political negotiations
Another dilemma of humanitarian access relating to humanitarian negotiations is the
course of action to choose in maintaining a distinct track for negotiations to secure and
sustain humanitarian access, separate from political negotiations. Policy guidance on hu-
manitarian negotiations suggests maintaining a clear separation between humanitarian-
and political negotiations as the end objectives and how they are achieved are different.
92
However, it is often the case when political negotiations are ongoing in a context in
which there are also ongoing humanitarian operations that high-level humanitarian ne-
gotiations are subsumed under the political negotiations. The greatest risks associated
with this approach are: (i) if the political track of negotiations falter or collapse, it can
also compromise humanitarian negotiations; (ii) that humanitarian objectives will be tied
in to political objectives in combined negotiations; and (iii) it fails to preserve the inde-
pendent character of the humanitarian negotiations.
Humanitarian organizations should strive to maintain a separation between hu-
manitarian and political negotiations. To this end, humanitarian negotiations
should be undertaken by different persons than those engaging in- or mediating
the political negotiations.
Humanitarian organizations should seek to establish separate and independent lines
of communications with parties to armed confict and other actors with whom they
may need to negotiate for humanitarian access.
6.5 Coordination of approach to
humanitarian access
One of the components of the methodology presented in this Manual is Structuring
Approach and Coordination (Component IV). This component set out the preferred
course of action to structuring the approach to- and ensuring coordination among
humanitarian organizations on humanitarian access.
In practice, coordination across humanitarian agencies to secure and sustain humanitar-
ian access, as with other humanitarian activities, often proves very challenging. Institu-
tional interests, desire to be the lead or prominent humanitarian agency, donor pressures
and reluctance to share information can all conspire to make it diffcult to coordinate
activities for access. On the other hand, in some contents Access Coordination Units or
similar entities have been established precisely to ensure more effective coordination on
humanitarian access.
CASE EXAMPLE: Establishment of an Access Coordination
Unit in the Occupied Palestinian Territories (OPT)
47
Prior to mid-2008, U.N. humanitarian agencies operating in
the OPT context addressed access constraints in a very ad hoc
47
Source: OCHA/UNOPS project document titled Access Coordination Unit, 2010.
93
manner. The U.N. found that the absence of a coordinated
approach to humanitarian access was placing an increased
drain on the personnel resources of individual humanitarian
organizations and was ineffective because of the multiple
separate approaches to- and lines of communication with the
Israeli authorities.
As a result, the inter-agency Access Coordination Unit (ACU)
was established in June 2008 to, rationalize, coordinate
and consolidate individual efforts being undertaken by U.N.
agencies, international NGO partners and diplomatic missions
to address restrictions in the movement of their staff and sup-
plies in the OPT.
As of May 2010, the ACU was well established and had man-
aged to streamline and make more effcient organizations
interactions with the Israeli authorities, the Palestinian Author-
ity and others on certain aspects of humanitarian access. This
was achieved by (among other factors): the ACU establishing
working relationships with interlocutors in various national
authorities, the ability of the ACU to reduce redundancy by
coordinating interventions on specifc access incidents, the
use of afterhours/emergency ACU contact persons to assist in
overcoming specifc access problems at any time, etc.
Guidance and options
In considering the best course of action to take in coordinating humanitarian access,
practitioners can:
Assess the potential for coordination in the particular content, including relation-
ships between humanitarian agencies, willingness to share information, coherence
on other humanitarian issues
Assess the risks and benefts of seeking to coordinate activities with other
humanitarian organizations on humanitarian access including: level of effort, re-
sources and time that will need to be invested, potential impact on humanitarian
needs of coordination on humanitarian access
Consider four possible models for coordination with other humanitarian organiza-
tions on humanitarian access:
94
1. Identifcation of a lead agency or group of organizations to coordinate humani-
tarian access activities
2. Activities by individual agencies on humanitarian access but coordinated with
others through sharing of information, contacts etc.
3. No coordination at level of country organizational headquarters, but pragmatic
coordination of activities (e.g., joint agency mission to negotiate humanitarian
access) at feld level
4. Division of labor among humanitarian organizations on humanitarian access
according to competencies and mandates.
[Depending on the in-country implementation of the cluster approach, and for hu-
manitarian organizations participating in the Humanitarian Country Team] Use the
Terms of Reference for Humanitarian Coordinators to confrm the key role of the
Humanitarian Coordinator with regard to humanitarian access.
48
6.6 Preserving humanitarian neutrality
in context of an integrated U.N.
peace operation
One of the most frequently recounted dilemmas of humanitarian access relates to the
challenge of maintaining humanitarian neutrality in the context of an integrated, U.N.-
mandated peace operation, including in a U.N. integrated mission environment (which
seeks to integrate political, development-related and humanitarian dimensions of the
United Nations work).
This dilemma is most acute for U.N. humanitarian organizations, but also affects non-
governmental organizations as local communities and perhaps even parties to the con-
fict may in some cases not (or not want to) distinguish between different types of
humanitarian organizations.
Moreover, the dilemma is most acute when the United Nations for example, by virtue
of a peace enforcement component of its mandate or protection of civilians by military
48
According to the Terms of Reference for Humanitarian Coordinators (HC), [The HC, whenever possible in
support of and in coordination with national and local authorities ] Expends all necessary efforts to obtain
free, timely, safe and unimpeded access by humanitarian organizations to populations in need, where appro-
priate, by leading and/or promoting negotiations with relevant parties, including non-state actors. Inter-
Agency Standing Committee (IASC), Terms of Reference for the Humanitarian Coordinator (Geneva: IASC,
May 2009). Available at: http://oneresponse.info [Accessed 18 January 2011]
95
means is asserted or perceived to be a party to the confict. For example, in the Demo-
cratic Republic of the Congo (DRC), some human rights organizations asserted that the
United Nations Organization Mission in the DRC (MONUC) was at certain times a party
to the armed confict (e.g., during 2008 2009).
In other cases, the direct support to political processes and democratic governance by
the United Nations (e.g., in Somalia) has fed a belief by opposition or non-State armed
groups that the United Nations system as a whole is supporting one side in the confict.
Guidance and options
In considering the best course of action to take in preserving humanitarian neutrality in
the context of an integrated U.N. mandated peace operation, practitioners can:
[For all humanitarian organizations] Avoid co-location (of facilities, buildings etc.)
with United Nations or other multilateral forces. Avoid use of armed escorts for
humanitarian convoys (except in extenuating circumstances and in accordance with
existing policy guidance), especially when operating in a situation of armed confict
in which the armed forces are viewed as supporting or partial to one party to the
confict.
[For all humanitarian organizations] When there is a signifcant risk of perceived as-
sociation with military forces or a political or military agenda, organizations should
consider developing a contingency strategy, to include: the use of independent lo-
gistics, coordination and safety and security capacities and clear differentiation and
separation of humanitarian roles (from political, military roles) through words (state-
ments, etc.) and actions.
[For all humanitarian organizations] When humanitarian conditions in times of
armed confict are further affected by natural disasters and other situations it may
become more diffcult to avoid collaboration with military forces, at least in the
short-term. In these situations humanitarian actors must balance the short-term hu-
manitarian benefts of operating in close collaboration with one party to the con-
fict against the longer-term perception challenges that may arise once the initial
response to the natural disaster has subsided. As a general principle, humanitarian
organizations responding to natural disasters and other crises in situations of ongo-
ing armed confict should be willing to collaborate transparently and equally with
all parties to the armed confict (i.e., with State military forces and with non-State
armed groups alike).
96
[For all humanitarian organizations] When operating in situations of armed confict,
focus exclusively on life saving and life sustaining activities, and not on longer-term
development roles.
[For all humanitarian organizations] Strengthen the organizations capacity to en-
gage effectively in humanitarian negotiations for the purpose of securing access.
[For non-U.N. humanitarian organizations] Depending on the context, decide what
relationship the organization will have with the armed forces of the U.N. peace
operation and the overall mission.
[For U.N. humanitarian organizations] Advocate within and across organizations
for separate leadership of the Humanitarian Country Team and the political and
development-related functions of the United Nations system. For example, advo-
cacy that the Humanitarian Coordinator retain an independence from the political
and development-related objectives of the system and that the person holding the
position not also serve as Resident Coordinator or within the leadership of the in-
tegrated mission focusing on political issues (e.g., the Deputy Special Representative
of the U.N. Secretary-General (D-SRSG), where such a position exists).
[For U.N. humanitarian organizations] Consider use of distinctive branding of hu-
manitarian vehicles that distinguish them from other U.N. assets not employed for
humanitarian purposes.49
[For U.N. humanitarian organizations] Build relationships with- and when necessary
negotiate with all parties to armed confict, irrespective of whether they are partici-
pating in a U.N. sponsored or other peace process.
[For U.N. humanitarian organizations] Retain independence of humanitarian action.
Avoid handing over roles such as humanitarian negotiations to those engaged in
political or security-related activities.
[For U.N. humanitarian organizations] Avoid transport of U.N. military personnel
whether armed or not in humanitarian vehicles.
[For U.N. humanitarian organizations, based on the above] Develop a strategy for
operating in the context of a U.N. integrated mission environment which refects
the nuance of convergence of overall U.N. objectives, but with necessary separate
operational activities (i.e., focus on integration of objectives rather than actions!).
49
For example, in Jalalabad, Afghanistan, in 2011 vehicles of U.N. humanitarian organizations used large blue
U.N. lettering on the vehicles while those of UNAMA used black U.N. lettering. Some communities and
even members of non-State armed groups referred to the blue U.N. and the black U.N. and made the
distinction between the parts of the U.N. system. This is merely an illustrative example of the distinction that is
made in many contexts where there is a U.N.-mandated peace operation of political mission.
97
[For all humanitarian organizations] Constantly convey and explain the role of the
organization, expressing that it is purely humanitarian in nature.
When presented with assertions that you only work with the government, state
that the organization is willing to engage with all parties to the confict to meet
humanitarian needs; Follow up (if no existing access) by proposing that the organi-
zation travel to areas under the control of non-State armed groups to deliver hu-
manitarian assistance and protection.
Finally, for all of above, demonstrate neutrality by actions and not only by words.
98
Annex I
Summary listing of key
resources
This list identifes select resources that can provide additional information and guidance
to humanitarian practitioners on humanitarian access:
99
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100
Annex II
Specifc provisions of
international law pertaining
to humanitarian access
Table 6 Some examples of specific provisions of general
international law pertaining to humanitarian access
101
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120
T
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(
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.
121
Annex III
Sample indicators related
to specifc humanitarian
access constraints
The following table provides an example of indicators used to monitor certain types
of constraints on humanitarian access. These indicators were developed by the United
Nations Offce for the Coordination of Humanitarian Affairs.
122
R
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f
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2
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p
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Annex IV Humanitarian
access worksheet
125
126
127
Notes
128
129
130
131
132
133
134
135
136
Contact
Federal Department of Foreign Affairs FDFA
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