INTER-AGENCY STANDING COMMITTEE
WORKING GROUP XVITH MEETING
30 November 1994
DEFINITION OF COMPLEX EMERGENCIES
BACKGROUND
1. Historically there have been a number of crisis which could have been defined as
"complex" due to the political considerations e.g. Biafra, Sudan,... However, the United
Nations has become increasingly involved in "complex" emergencies, as defined below,
as a consequence "both of its mandate to maintain international peace and security and its
role of mobilising international assitance in emergencies" Responding to Emergencies: The Role of
the UN in Emergencies and Ad Hoc Operations. A Study Commissioned by the Nordic UN Project: Report no. 14:1990, p.
10
. In the context of the post-Cold War era, the former has led to a growing number of situations
in which UN peacekeeping and peacemaking forces are part of a "dynamic link" to
humanitarian assistance Annual Report to the 47th Session of the General Assembly by the Secretary General
.
2. UN responsibilities to mobilise international humanitarian assistance is growing as ethnic
rivalry, religious extremism, micronationalism, population pressures, poverty,
environmental degradation, and economic marginalisation increasingly lead to life-
threatening situations for significant numbers of people. Finally, UN "blue helmets" often
undertake heavy responsibilities in the delivery of humanitarian assistance, linking the
two objectives, political and humanitarian.
3. IASU has based the proposed definition on the valuable inputs provided by UNHCR,
WFP, UNICEF, IFRC, UNDRO, UNDP, FAO as well as other reports footnoted where
relevant.
4. Annex A presents a consolidation of definition of "emergencies", "disasters" and
"complex emergencies".
5. IASU is suggesting the following points for consideration by the IASC-WG to assist the
working group in future emergency management and coordination.
DEFINITION OF COMPLEX AND MAJOR EMERGENCIES
We have wanted to find a pragmatic, specific and operational definition which would help the
IASC to decide when emergencies require the nomination of a Humanitarian Coordinator.
Issues of a policy nature are noted in point 7 for the WG's consideration and eventual decision.
6. A Complex Emergency is defined as:
a) a humanitarian crisis which occurs in a country, region, or society where there is
a total or considerable breakdown of authority resulting from civil conflict and/or
foreign aggression;
b) a humanitarian crisis which requires an international response which goes
beyond the mandate or capacity of any single agency;
c) a humanitarian crisis where the IASC assesses that it requires intensive and
extensive political and management coordination.
7. From the comments received from agencies, three other definition components have also
been proposed and are listed below. As these are of a policy nature, the WG is asked to
consider whether it wants to include them in the base definition as given in point 6
above.
7.1 the United Nations Security Council becomes seized of the situation;
7.2 the Security Council authorises the use of peace making, peace-keeping forces or
other major political initiatives and action;
7.3 the Secretary-General appoints a Special Representative for the country affected by
the crisis.
8. Based on the above definition, some characteristics of "complex" emergencies will be:
8.1 There are large number of civilian casualties, populations who are besieged or
displaced quickly and in large numbers, human suffering of major proportion.
There is therefore a requirement for massive humanitarian assistance but it is
seriously impeded, delayed, or prevented by politically or conflict motivated
constraints;
8.2 high security risks for relief workers attempting to provide humanitarian assistance;
8.3 situations that require a high degree of external political support to enable
humanitarian response, including negotiated access to affected populations;
8.4 international and cross-border dimensions that require intervention by a range of
participants beyond a single national authority; such intervention are characterised
by political differences between those concerned and may therefore require
political mediation and coordination.
Points of Reference
9.1 An effective response to a "complex emergency" normally requires active political
support for humanitarian interventions, usually from the Security Council. It also
requires a coordinated response among organisations, both humanitarian and political.
9.2. Mechanisms for support in "complex emergencies" require strong headquarters support
capacity as well as enhanced field capacity for an extended period of time. This need not
be the case in major emergencies where strengthened field capacity for a short period of
time is usually the principal factor.
MAJOR EMERGENCIES
10 A Major Emergency is a situation threatening the lives and well-being of a very large
number of people or a very large percentage of a population and often requiring
substantial multi-sectoral assistance. It is normally characterised by:
10.1 not being caused by politically motivated decisions nor is humanitarian access to
affected populations impeded by political calculations. Governments, within the limits of
their capacity, try to facilitate delivery of aid to affected population. In most cases,
governments will try to respond to these emergencies with their own resources, with UN
and/or bilateral assistance if necessary;
10.2 the inadequacy of local and national capacities to respond to the relief needs of
affected populations;
10.3 international and cross-border dimensions that require intervention by a range of
participants beyond a single national authority but which are at the same time not characterised
by political differences between those involved;
10 .4 a situation in which the size of the emergency and the amount and types of required
relief resources transcend the capacity of single agency to provide adequate assistance;
10.5 the need for, and delivery of, relief resources that are themselves sufficiently large-
scale and therefore complicated so that standard agency responses would not be adequate;
10.6 a great demand for logistical capacity which may require special coordination
arrangements.
RECOMMENDATIONS
11. As the mandate of the UN Emergency Relief Coordinator, as defined in GA Resolution
46/182, and by implication of the IASC, covers complex and major emergencies, any
participating agency and organization can request the IASC to discuss an emergency
whenever it is felt that a coordinated system-wide response is required.
12. It is important to maintain the distinction between a "complex emergency" and a "major
emergency", as it clarifies those issues and problems for which the Department of
Humanitarian Affairs should have the leading role in facilitating the response of the
international humanitarian relief system. In addition, a different profile for the
Humanitarian Coordinator will need to be considered based on the type of emergency.
13. The duration of a complex emergency should be considered. The IASC will define a
period of appointment for the Humanitarian Coordinator in a given Complex Emergency.
The IASC will, before the period expires, review the situation to agree whether there is a
continued need to have a Humanitarian Coordinator.
14. An emergency which falls clearly within the overall competence and capacity of a single
UN agency should not be treated as a complex emergency the IASC is requested to
consider it as such.
ANNEX I
VARIOUS DEFINITIONS OF EMERGENCY, DISASTERS, COMPLEX
EMERGENCIES
Each organization has its definition which relates to its mandate. As background information,
DHA has compiled the definitions most often encountered. Definitions are presented in
organisations´ alphabetical order.
IFRC
Disasters: situations resulting from natural or other calamities.
Emergency: none
Complex emergency: none
UNDP
Disaster: occurences when hazards, whether natural or human-made, interact with vulnerable
populations.
Emergency: occurences when the dimensions of the disaster exceed the coping capacity of the
affected community. The internaitonal community is called upon to respond when the disaster's
effects exceed the coping capacity of the country concerned.
Complex emergency: occurences in a country or society when:
a) total or cosiderable breakdown of law and order happens as a result of civil conflict or
foreign aggression leading to civilian casualties, displacement of population and human
suffering of major proportions and when the government either does not exist or is not in
a position to fully exercise its role;
b) United Nations Security Council becomes seized by the situation and authorizes the use
of peace-keeping, peace-keeping forces or other amjor political initiatives and action;
c) massive international humanitarian response is required;
d) the Secretary General declares the state of complex emergency.
UNDP/DHA DMTP
Complex Emergency: a form of human made emergency in which the cause of the emergency
as well as the assistance to the afflicted are bound by intense levels of political calculations.
This sort of emergency is normally associated with the problems of displaced people during
times of civil conflict or with people in need caught in areas of conflict.
UNDRO/DHA
Disasters: a serious disruption of the functioning of a society, causing widespread human,
material, or environmental losses which exceed the ability of affected society to cope using its
own resources. Disasters are often classified according to their speed of onset (sudden or slow),
or according to their cause (natural or man-made).
Emergency: a sudden and usually unforeseen event that calls for immediate measures to
minimize its adverse consequences.
UNHCR
Disaster: none
Emergency: any situation in which the life or well-being of refugees will be threatened unless
immediate and appropriate action is taken, and which demands an extraordinary response and
exceptional measures.
UNICEF
Disaster: none
Emergency: a situation of hardship and human suffering arising from events whhich cause
physical loss or damage, social and/or economic disruption with which the country or
community concerned is unable to fully cope alone. It may result from a "natural disaster"-
either high impact (e.g. earthquake) or slow onset (e.g. drought) - or be "man-made" causes (e.g.
war, civil unrest)
Complex Emergency: none
WHO
Disasters: occurences that cause damage, ecological disruption, loss of human life,
deterioration of health and health services on a scale sufficient to warrant an extraordianry
response from outside the affected commmunity or area.
Emergency: a sudden occurence demanding immediate action that may be due to epidemics,
technological catastrophe, strife or to natural or man-made causes.
Complex emergency: a form of man-made emergency in which the cause of the emergency as
well as the assistance to the afflicted are bound by intensive levels of political considerations.
WFP
Disaster: none
Emergency: urgent situations in which there is clear evidence that an event has occurred which
causes human suffering or loss oflivestock and which the government concerned hadsnot the
means to remedy; and it is a demonstrably abnormal event which produces dislocation in the life
of a community on an exceptional scale. The main characteristics are:
- human suffering demanding urgent action;
- dislocation of community economic activities, social life or both on an exceptional scale;
- the suffering, disruption and food scarcity whioch is observed is clearly the result of a
particular event, or series of events, which is itself abnormal;
- the government concerned has insufficient resources to provide the remedy. Without outside
assistance, the immediate physical, social and economic survival of the afflicted are severely
at risk.
ICRC
Disaster: none
Complex Emergency: Complex Emergency is not a concept within the realm of the
International Humanitarian Law applicable in armed conflicts.
However, for operational purposes, the ICRC considers there is an emergency as long as the
fundamental needs of vulnerable categories of clearly identified war victims are not met.
Comprehensive solutions to humanitarian problems must be sought to restore the conditions
needed for people affected by conflict to survive and live with dignity. Programs must be
designed to ensure that the affected population is provided with the following services
simultaneously: shelter from the elements, sufficient food and water, satisfactory hygiene
conditions, medical care and protection against attacks or threats to physical and mental well-
being.
It is important to position the various stages of assistance, from emergency aid to sustained
recovery. Emergency aid must not block the road to development. The ICRC considers certain
emergency rehabilitation programs an integral part of the emergency phase of assistance.
