Handbook for Emergencies - Second Edition (UNHCR, 1999, 414 p.): 3. Emergency Management: Introduction

Handbook for Emergencies - Second Edition (UNHCR, 1999, 414 p.)

(introduction...)

Using the Handbook

Introduction

Abbreviations

UNHCR's Mission Statement

1. Aim and Principles of Response

(introduction...)

Definition and Aim

Responsibilities

Principles of Response

2. Protection

(introduction...)

Introduction

Protection in Emergencies

Initial Actions

Physical Safety of Refugees

Emergencies as a Result of Changes in Government Policy

Other Persons of Concern to UNHCR

Durable Solutions

Key References

Annexes

3. Emergency Management

(introduction...)

Introduction

The Key Emergency Management Functions

Stages in Refugee Emergency Operations

Key References

4. Contingency Planning

(introduction...)

Introduction

Planning as a Process

Contingency Planning Tasks

Characteristics of a Good Plan

Key References

Annexes

5. Initial Assessment, Immediate Response

(introduction...)

Introduction

Organizing the Assessment

Immediate Response

Protection and Material Assistance

Key References

Annexes

6. Operations Planning

(introduction...)

Introduction

Operations Planning Tasks

Allocation of Responsibilities

Annexes

7. Coordination and Site Level Organization

(introduction...)

Coordination

Organization at the Site Level

Key References

Annexes

8. Implementing Arrangements

(introduction...)

Introduction

Implementing Arrangements

Implementing Procedures

Monitoring, Reporting and Evaluation

Special Considerations

Key References

Annexes

9. External Relations

(introduction...)

Relations with Government and Diplomatic Corps

Relations with the Media

Funding and Donor Relations

Formal Written Communications

Annexes

10. Community Services and Education

(introduction...)

Overview

Introduction

Organizing Community Services

Human Resources

Family Tracing and Reunification

Groups at Risk and Vulnerable Groups

Education

Key References

Annexes

11. Population Estimation and Registration

(introduction...)

Overview

Introduction

Population Estimates

Registration

Key References

Annexes

12. Site Selection, Planning and Shelter

(introduction...)

Overview

Introduction

Organization of Response

Criteria for Site Selection

Site Planning: General Considerations

Site Planning: Specific Infrastructure

Shelter

Reception and Transit Camps

Public Buildings and Communal Facilities

13. Commodity Distribution

(introduction...)

Overview

When to start distribution

Choosing a Commodity Distribution System

Components of Distribution Systems

The Role of Refugee Women

Monitoring

Key References

14. Health

(introduction...)

Overview

Introduction

Health Assessment, Planning, Monitoring and Surveillance

Main Health Programmes

Organization of Refugee Health Care

Human Resources and Coordination

Key References

Annexes

15. Food and Nutrition

(introduction...)

Overview

Introduction

Organization of Food Support

Nutritional Assessments

General Feeding Programme

Selective Feeding Programmes

Infant Feeding and use of Milk Products

Key References

Annexes

16. Water

(introduction...)

Overview

Introduction

Assessment and Organization

The Need

Immediate Response

Water Supply Systems

Water Sources

Pumping Equipment

Treatment

Storage

Distribution

Key References

17. Environmental Sanitation

(introduction...)

Overview

Introduction

Basic Principles And Standards

Human Resources And Organization

Human Excretia Disposal

Solid Wastes

Wastewater

Pest and Vector Control

General Hygiene

Disposal Of The Dead

Key References

Annexes

18. Supplies and Transport

(introduction...)

Overview

Introduction

Organization of the Supply Chain

Supplies

Transport

Reception of Goods

Storage

Stock Management

Key References

Annexes

19. Voluntary Repatriation

(introduction...)

Overview

Introduction

UNHCR's Role in Voluntary Repatriation

Conditions For a Voluntary Repatriation

On Route

On Arrival in Country of Origin

Key References

Annexes

20. Administration, Staffing and Finance

(introduction...)

Introduction

Emergency Staffing

Budget and Finance

Non-Expendable Property and Office Supplies

Office Premises

Official Transport

Office Organization

Key References

Annexes

21. Communications

(introduction...)

Introduction

Communications Management

Telecommunications

UNHCR Telecommunications Network Field Preparations

Key References

Annexes

22. Coping with Stress

(introduction...)

Introduction

Identifying Stress Symptoms

Techniques for dealing with Stress

Key References

23. Staff Safety

(introduction...)

Introduction

The UN Security System

Essential Plans

Security

Security Management

Key References

24. Working with the Military

(introduction...)

Introduction

Categories of Military Forces

Possible Roles of Military Forces in Humanitarian Operations

Coordination Between Military Forces and Civilian Agencies

Key References

Appendix 1 - Catalogue of Emergency Response Resources

Appendix 2 - Toolbox

Appendix 3 - Memoranda

Appendix 4 - Glossary

Introduction

1. There is no single blueprint for refugee emergency management; each refugee emergency is unique. However, experience shows that emergencies tend to evolve according to certain recognizable and documented patterns.

Good emergency management relies on knowledge of these patterns and of the effective measures to deal with them.

Emergency situations do not necessarily result in tragedy. The chance of this occurring will be greatly reduced if the emergency is well managed from the stage of preparedness onwards.

2. While emergency management shares many of the characteristics of good management in general, there are a number of distinguishing features:

i. The lives and well-being of people are at stake;

ii. Reaction time is short;

iii. Risk factors are high and consequences of mistakes or delays can be disastrous;

iv. There is great uncertainty;

v. Investment in contingency planning and other preparedness activities is crucial;

vi. Staff and managers may be under particularly high stress because of, for example, security problems and harsh living conditions;

vii. There is no single obvious right answer.

Organization of this Section

3. This section of the handbook (chapters 3 to 9) is structured to reflect the phases of emergency preparedness and response. Firstly, the preparedness activities of contingency planning and early warning are dealt with (chapter 4), followed by initial needs and resources assessment and immediate response (chapter 5). Operations planning, coordination and site level organization are dealt with in chapters 6 and 7. Next, implementing arrangements are discussed, including procedures for operations implementation and control (chapter 8). Finally, chapter 9 on external relations covers relations with the host government (including establishing a formal presence in the country of operations), relations with the donor and diplomatic community and handling media interest. Note that certain activities cut across the phases of emergency preparedness and response. This is particularly the case with external relations, coordination, and planning.

4. Figure 1 shows some of the considerations discussed in this section in diagrammatic form, in particular in relation to emergency response. The response activities of problems and needs assessments, operations planning, implementing arrangements and programme formulation are all very closely related. Some aspects treated separately may be indivisible in practice, and there is no single correct order or way in which an emergency operation should be formulated (but it must conform to established UNHCR procedures governing project submission and control).

Figure 1 - Considerations in Emergency Management

Capacity and Resources

5. Emergency management can be defined as:

the organization of capacities and resources to meet threats to the lives and well-being of refugees.

6. Preparing for and responding to refugee emergencies are tasks which require the availability of the right resources at the right time as well as the capacity to use these resources effectively.

7. Capacity is the internal organizational capability which includes planning, staffing, structure, systems, procedures, guidelines, information flow, communication, decision-making and administrative support. Resources are the financial and human resources, relief materials, support equipment, tools and facilities.

8. If capacity is weak, then the emergency response is likely to be weak, even if resources are adequate.

Strong capacity can sometimes alleviate resource shortfalls by making more effective use of limited resources.

9. Capacity is an aspect of emergency management which is sometimes not given adequate priority. Resources are often given more emphasis during both the planning and operational stages since they are a more tangible element. But it is capacity that determines the quality of an emergency response. A well-capacitated organization is more likely to be able to mount a credible and effective operation, attracting the necessary resources.

10.

Effective emergency management requires that the development and use of capacity be accorded correct priority throughout the different phases of an operation.

While much of the required capacity must be pre-existing, capacity can also be developed during an operation.