Handbook emergencies

Handbook for
Emergencıes
United Nations High Commissioner for Refugees
Second Edition

Chapters may be located quickly by using the key on the contents page. Particular subjects may
be located by using the index. The handbook is structured as follows:
Section One
summarizes UNHCR’s mandate of international protection and the aim and principles of
emergency response;
Section Two
deals with emergency management;
Section Three
covers the vital sectors and problem areas in refugee emergencies, including health, food,
sanitation and water, as well as key field activities underpinning the operations such as lo-
gistics, community services and registration. The chapters in this section start with a sum-
mary so that readers, who might not need the full level of detail in each of these chap-
ters, can understand the basic principles of the subject quickly;
Section Four
gives guidance on the support to field operations, primarily administration and staffing;
The Appendices
include UNHCR’s Catalogue of Emergency Response Resources, which set out what re-
sources can be immediately deployed, and how and when. The appendices also include a
“Toolbox” which gathers, in one location, the standards, indicators and useful references
used throughout the handbook.
In addition to the Catalogue of Emergency Response Resources, another key companion refer-
ence is the Checklist for the Emergency Administrator to which is annexed many of the essential
UNHCR forms, policy documents, and guidelines referred to in this handbook, which are neces-
sary for the administrator setting up a new office. Another key companion reference is the
UNHCR Manual – this is valid at time of going to press; however, chapter 4 of the Manual dealing
with programme and project management is due to be updated and replaced by the Operations
Management System Field Manual.
Any part of this handbook may be copied or adapted,
provided that the source is acknowledged.
III

V
Table of Contents
Section Chapter Page Number
I Using the handbook III
II Table of contents V
III Introduction VI
IV Abbreviations IX
V UNHCR mission statement X
I. UNHCR principles 1 Aim and principles of response 2
2 Protection 10
II. Emergency management 3 Emergency Management 26
4 Contingency Planning 34
5 Initial Assessment, immediate response 42
6 Operations Planning 48
7 Coordination and site level organization 56
8 Implementing arrangements 66
9 External relations 82
III. Operations 10 Community services and education 94
11 Population estimation and registration 118
12 Site selection, planning and shelter 132
13 Commodity distribution 148
14 Health 154
15 Food and nutrition 184
16 Water 210
17 Environmental sanitation 228
18 Supplies and transport 248
19 Voluntary repatriation 272
IV. Support to operations 20 Administration staffing and finance 290
21 Communications 310
22 Coping with stress 318
23 Staff safety 324
24 Working with the military 334
V. Appendices 1 Catalogue of emergency response resources 340
2 Toolbox 368
3 Memoranda of understanding 378
4 Glossary 400
5 Index 402
Handbook for
Emergencıes

Effective emergency preparedness and response has been a major priority of UNHCR
throughout the decade. In 1991, during my first field mission as High Commissioner,
I witnessed the sudden and dramatic exodus of hundreds of thousands of Kurdish
refugees from their homes in Iraq to Turkey and the Islamic Republic of Iran. Since
then, the Office has responded to a long list of massive outflows.
These crises have caused widespread human suffering and put great demands on our
Office, prompting us to develop an effective and speedy response mechanism. We
have established a revolving internal roster that ensures the deployment of UNHCR
staff within 72 hours. Standby arrangements with external agencies for rapid de-
ployment of their staff have also been created. We have devised and implemented
staff training, as well as specific management tools to maintain our readiness to
respond quickly and effectively to emergency situations. To address humanitarian
needs urgently, a centralized stockpile of goods has been assembled, which includes
governmental packages of humanitarian assistance.
Having dispatched over 300 missions throughout the world since 1992, the office
now has in place a solid emergency response model, an achievement for which we
can all be proud. Undoubtedly, this model will face further challenges as grave
human displacements continue to occur. However, this pattern is changing from the
humanitarian emergencies of the early nineties. Arising more frequently now are
scattered crises, often of a relatively smaller scale and with limited international
visibility. Conflicts are mostly internal and more localized, although external involve-
ment continues to play an important role. Those forced to flee their homes, as well as
the humanitarian workers assisting them, are increasingly targeted by the warring
factions. On the positive side, improved communications, even in some remote loca-
tions, have enhanced our ability to operate. In addition, UNHCR has worked under
new cooperative arrangements with other humanitarian agencies or even govern-
mental institutions, including military forces.
This revised and updated Handbook provides useful guidance as our Office continues
to cope with the swift and increasingly dangerous nature of fresh displacement. It
stresses the importance of pre-emergency planning, as well as planning throughout
every stage of a crisis. It focuses on setting coordination priorities, as well as contin-
gency and operational planning. Important information has also been included
regarding staff safety and working with military personnel, as well as a section
addressing the issue of how to cope with personal stress.
Reflected in this edition is the dedication and experience of field staff and specialists
both within the office and from partner organizations, which spans the last 17 years
since the original UNHCR Handbook was first published. I would like to gratefully
acknowledge what is an exemplary group effort.
This Handbook will assist colleagues to meet the challenges ahead as we cope with
the changing nature of emergencies. It should serve as a reminder that displacement
crises require carefully prepared and well managed responses that optimize the
unique strength and capacities of various groups and organizations. As we face these
new challenges, let us look forward to fine tuning this response model that our
Office has worked so hard to establish.
VII

IX
ABBREVIATIONS
Organizations
DPKO Department of Peace-keeping Operations
FAO Food and Agriculture Organization of the United Nations
IASC United Nations Inter-Agency Standing Committee
ICRC International Committee of the Red Cross
IFRCS International Federation of the Red Cross and Red Crescent Societies
ILO International Labour Organization
MCDU Military and Civil Defence Unit of OCHA
OAU Organization of African Unity
OCHA Office for the Coordination of Humanitarian Affairs
UNDP United Nations Development Programme
UNICEF United Nations Children’s Fund
UNSECOORD United Nations Security Coordinator
WFP World Food Programme
WHO World Health Organization
Other Abbreviations
DO Designated Official
ABOD Administrative Budget and Obligation Document
DSA Daily Subsistence Allowance
ERC Emergency Relief Coordinator
GIS Geographical Information Systems
IDP Internally Displaced Persons
IOM/FOM Inter-Office Memorandum/Field Office Memorandum
NGO Non-governmental Organization
MT Metric tonne
SITREP Situation Report

XI
UNHCR, the United Nations refugee organization, is mandated by the United
Nations to lead and coordinate international action for the world-wide protection
of refugees and the resolution of refugee problems.
UNHCR's primary purpose is to safeguard the rights and well-being of refugees.
UNHCR strives to ensure that everyone can exercise the right to seek asylum and
find safe refuge in another state, and to return home voluntarily. By assisting
refugees to return to their own country or to settle in another country, UNHCR
also seeks lasting solutions to their plight.
UNHCR's efforts are mandated by the organization's Statute, and guided by the
1951 United Nations Convention relating to the Status of Refugees and its 1967
Protocol. International refugee law provides an essential framework of principles
for UNHCR's humanitarian activities.
UNHCR's Executive Committee and the UN General Assembly have also author-
ized the organization's involvement with other groups. These include people
who are stateless or whose nationality is disputed and, in certain circumstances,
internally displaced persons.
UNHCR seeks to reduce situations of forced displacement by encouraging states
and other institutions to create conditions which are conducive to the protection
of human rights and the peaceful resolution of disputes. In pursuit of the same
objective, UNHCR actively seeks to consolidate the reintegration of returning
refugees in their country of origin, thereby averting the recurrence of refugee-
producing situations.
UNHCR offers protection and assistance to refugees and others in an impartial
manner, on the basis of their need and irrespective of their race, religion, political
opinion or gender. In all of its activities, UNHCR pays particular attention to the
needs of children and seeks to promote the equal rights of women and girls.
In its efforts to protect refugees and to promote solutions to their problems,
UNHCR works in partnership with governments, regional organizations, interna-
tional and non-governmental organizations. UNHCR is committed to the princi-
ple of participation by consulting refugees on decisions that affect their lives.
By virtue of its activities on behalf of refugees and displaced people, UNHCR also
promotes the purposes and principles of the United Nations Charter: maintaining
international peace and security; developing friendly relations among nations,
and encouraging respect for human rights and fundamental freedoms.

1
Aim and Principles of Response
2

CONTENTS Paragraph Page
Definition and Aim 1-5 4
Definition of Emergency
Aim
Responsibilities 6-16 4-5
Governments and UNHCR
UN Organizations
Non-Governmental Organizations
Other Organizations
The Refugees
Defining Responsibilities
Principles of Response 17-38 5-8
Introduction
Get the Right People, to the Right Place, at the Right Time
Ensure the Measures are Appropriate
Involve the Refugees and Promote Self-Reliance
Do Not Treat Issues in Isolation
Work for Durable Solutions
Monitor and Evaluate the Effectiveness of Response
AimandPrinciplesofResponse1
3

Definition and Aim
1. The majority of UNHCR's operations be-
gin as a result of an emergency caused by a
sudden influx of refugees1
. The organization
and procedures of UNHCR reflect this; much of
UNHCR's normal work is in effect an emer-
gency response. There are, however, situations
that are clearly exceptional. This handbook
addresses the needs of such situations.
Definition of
2. The distinction is one of degree: a defini-
tion of a refugee emergency for the purposes
of UNHCR and this handbook might be:
any situation in which the life or well-
being of refugees will be threatened un-
less immediate and appropriate action is
taken, and which demands an extraordi-
nary response and exceptional measures.
3. What is important is less a definition
than the ability to recognize in time the devel-
opment of situations in which an extraordi-
nary response will be required of UNHCR in
order to safeguard the life and well-being of
refugees.
4. Much of the handbook is concerned with
guidelines on the protection and material as-
sistance likely to be needed when large num-
bers of refugees cross frontiers to seek asylum
i.e. an emergency caused by a sudden influx of
refugees.
5. Such emergencies are, of course, not the
only situations which demand an extraordi-
nary response of UNHCR. Equally swift action
will be required in other types of emergency.
For example, an emergency can develop in
an existing operation, such as when events
suddenly place in danger refugees who had
previously enjoyed asylum in safety (discussed
in chapter 2 on protection). It can also erupt
during the final phase of an operation as in
the case of a large-scale repatriation (discus-
sed in chapter 19 on voluntary repatriation). In
addition there are complex emergencies,
which are humanitarian crises involving the
competence of more than one UN agency (see
chapter 7 on coordination for a full defini-
tion). The general guidance provided in this
handbook will be useful to these types of
emergencies as well.
Aim
Responsibilities
Governments and UNHCR
6. Host governments are responsible for the
security and safety of, assistance to, and law
and order among refugees on their territory.
Governments often rely on the international
community to help share the burden, and
UNHCR provides assistance to refugees at the
request of governments.
7. The role of UNHCR in emergency opera-
tions is primarily to protect refugees. UNHCR
assists and complements the work of the gov-
ernment by acting as a channel for assistance
from the international community, and by
coordinating implementation of the assis-
tance. Whatever the organizational manner
in which UNHCR provides emergency assis-
tance in response to a government request,
UNHCR is responsible for ensuring that the
protection and immediate material needs of
the refugees are met in an effective and
appropriate manner.
UN Organizations
8. The material needs of refugees are likely
to cover sectors for which other organizations
in the UN system have special competence. In
particular, the World Food Program (WFP),
with which UNHCR has established a close
partnership, provides the major part of the
emergency food needs of refugees. In recog-
nition of each organization’s comparative ad-
vantages and skills, and with the aim of giving
consistency and predictability to the relation-
ships between them, UNHCR has concluded
Memoranda of Understanding (MOUs) with a
number of UN organizations. These MOUs
also cover issues related to emergency pre-
paredness and response, such as joint contin-
gency planning, joint assessments and devel-
opment of standards and guidelines, as well as
programme implementation. Notable among
these are the MOUs with WFP, the United
The statutory function of providing interna-
tional protection to refugees and seeking
permanent solutions for their problems is
however, always UNHCR's responsibility.
The aim of UNHCR's emergency response is
to provide protection to persons of concern
to UNHCR and ensure that the necessary
assistance reaches them in time.
4
1
For convenience, “refugee” is used in this handbook to
refer to all persons of concern to UNHCR. The different cat-
egories of persons of concern, including refugees, are de-
fined in chapter 2 on protection.

Nations Development Programme (UNDP) and
the United Nations Children’s Fund (UNICEF),
which are contained in Appendix 3. UNHCR
has also signed MOUs with the United Nations
Population Fund (UNFPA), the United Nations
Development Fund for Women (UNIFEM) and
the World Health Organization (WHO).
9. Responsibility for coordinating the res-
ponse of the UN system to a refugee emer-
gency normally rests with UNHCR.
10. The UN body charged with strengthening
the coordination of humanitarian assistance of
the UN to complex emergencies is the Office
for the Coordination of Humanitarian Affairs
(OCHA)2
, through coordination, policy devel-
opment and advocacy. Complex emergencies
are defined and discussed in more detail in
chapter 7 on coordination.
11. Large numbers of non-governmental
organizations (NGOs) provide assistance to re-
fugees in emergencies. These organizations
often act as UNHCR's operational partners.
The division of responsibilities is determined
by the implementing arrangements agreed
between them, the government and UNHCR
regardless of whether funding is from UNHCR
or elsewhere. This is discussed in more detail
in chapters 7 and 8 on coordination and im-
plementing arrangements.
Other Organizations
12. A number of other organizations also act
as operational partners in the provision of as-
sistance to refugees in emergencies. In partic-
ular, the International Committee of the Red
Cross (ICRC), the International Federation of
Red Cross and Red Crescent Societies (IFRCS)
with the National Red Cross and Red Crescent
Societies, have long provided such assistance.
The ICRC mandate requires a high degree of
operational neutrality and independence,
which sometimes limits their participation in
coordination mechanisms and the exchange
of information between them and other
organizations.
13. Other operational partners could in-
clude inter-governmental organizations, for
example the International Organization for
Migration (IOM). The objective of IOM is to
ensure the orderly migration of persons who
are in need of international migration assis-
tance. IOM works subject to the agreement
of both (or all) the states concerned with the
migration. IOM has worked closely with
UNHCR, notably by assisting with voluntary
repatriation.
The Refugees
14. Beyond the right to international protec-
tion under the Statute of UNHCR and under
the 1951 Refugee Convention and 1967 Pro-
tocol, all refugees, as indeed all persons, have
certain basic human rights. These are enshrined
in the Charter of the United Nations and in the
Universal Declaration of Human Rights: the
fundamental right to life, liberty and security of
person; protection of the law; freedom of
thought, conscience and religion; and the right
to own property. Refugees have the right to
freedom of movement. However, it is recog-
nized that, particularly in cases of mass influx,
security considerations and the rights of the
local population may dictate restrictions.
15. Refugees and displaced persons also
have, of course, responsibilities towards the
country where they have sought refuge. These
are set out in Article 2 of the 1951 Conven-
tion: "Every refugee has duties to the country
in which he finds himself, which require in
particular that he conform to its laws and
regulations as well as to measures taken for
the maintenance of public order." The civilian
nature of refugee status must be respected.
Defining Responsibilities
16. All those involved, both inside and out-
side the UN system, should have clearly de-
fined responsibilities within a single overall
operation. This can be achieved through the
establishment of an appropriate coordinating
structure at various levels to ensure that dup-
lication of effort and gaps are avoided. In
certain situations, the coordinating role of
UNHCR may need to be more direct and oper-
ational, both in planning and executing the
emergency response, and in providing exper-
tise in specific sectors.
Principles of Response
Introduction
17. Whatever the framework of responsibil-
ity for a particular refugee emergency, certain
principles of response are likely to be valid.
Many of these are common themes in the
chapters that follow.
5
2
This was formerly known as the Department of Huma-
nitarian Affairs (DHA).

18. By definition, the needs of a refugee
emergency must be given priority over other
work of UNHCR. This is essential if the aim of
ensuring protection and timely assistance to
refugees is to be met. Leadership and flexibil-
ity are required of UNHCR in an emergency.
Get the Right People to the Right Place
at the Right Time
19. The single most important factor in de-
termining whether or not sufficient emer-
gency assistance reaches the refugees in time
will probably be the people involved in organ-
izing and implementing the operation.
No amount of expertise and experience can
substitute for organizing ability, flexibility, a
readiness to improvise, ability to get on with
others, ability to work under pressure no
matter how difficult the conditions, tact, sensi-
tivity to other cultures and particularly to the
plight of refugees, a readiness to listen, and,
not least, a sense of humour.
Ensure the Measures are Appropriate
Identify Needs
20. An appropriate response in the provision
of protection and material assistance requires
an assessment of the needs of refugees that
takes into account not only their material
state and the resources available, but also
their culture, age, gender and background
and the culture and background of the
nationals in whose country they are granted
asylum. The provision of protection and of
essential goods and services must be provided
to refugees in ways which actually meet their
needs.
Be Flexible and Respond to Changing Needs
21. What is appropriate will vary with time.
In the early stages of a major emergency spe-
cial measures that rely heavily on outside assis-
tance may be necessary. However, as a general
principle, the response should draw to the ex-
tent possible on local resources, materials and
methods, and should, for example, avoid regi-
mented refugee camps. Solutions that can be
readily implemented with existing resources
and simple technologies should be sought.
Identify Standards
22. It is an important responsibility of UNHCR
to determine with the government and opera-
tional partners the standards of assistance
that are appropriate. This requires expertise in
a number of disciplines. The guidelines in
Section III of this handbook suggest general
considerations, to be modified in light of the
circumstances of each emergency. Appendix 2
(Toolbox) also contains standards. What is to
be decided for each sector is the correct level
of total assistance from all sources.
23. As a general principle, the standards of
assistance must reflect the special needs of the
refugees based on their condition, physical
situation and experiences. At the same time
account must be taken of the standards
planned for and actually enjoyed by the local
population.
24. If the standards have been correctly deter-
mined, they cannot later be lowered without
harm to the refugees. The refugees must, for
example, receive a minimum basic food ration.
Outside contributions required to reach the
standards will, however, naturally be reduced
as the refugees become more self-reliant.
Always Remember the Longer Term
Objectives
25. A final general principle in considering
the appropriateness of measures is that, from
the start, resources must be divided between
immediate needs and action aimed at longer-
term improvements and the prevention of
problems. For example, resources must be
devoted to general public health measures as
well as to the treatment of individual diseases,
which will include many that could be pre-
vented by better water and sanitation. Emer-
gency assistance is to be allocated to the maxi-
mum extent possible to activities which will be
of lasting benefit, thus keeping any relief
phase as short as possible.
26. From the beginning of an emergency,
and even during preparations for an emer-
gency, planning must take into account the
post emergency phase as well as the envis-
aged durable solutions.
Involve the Refugees and Promote
Self-reliance
27. In order to ensure that the assistance pro-
vided to refugees is appropriate, the refugees
must be involved from the outset in the meas-
ures taken to meet their needs. In addition, all
Enough UNHCR and implementing partner
staff of the right calibre and experience
must be deployed to the right places, and
equipped with the authority, funds, mate-
rial and logistical support needed.
6

components of the operation must be planned
in such a way as to promote their self-reliance.
Obvious as this principle is, the pressures of an
emergency often make it easier to organize an
operation from the outside for, rather than
with, those whom it is to benefit.
28. If the emergency operation involves the
refugees in this way from the start, its effec-
tiveness will be greatly enhanced. Further-
more, such an approach will allow the
refugees to maintain their sense of dignity
and purpose, encourage self-reliance and help
avoid dependency. In emergencies, refugees
are often regarded as helpless and passive
recipients of external assistance. In the long
term this sets a pattern of dependency. Re-
fugees must be encouraged to help them-
selves by using their own skills and resources
from the beginning of an emergency.
29. Refugees are often most able to help
themselves, and thus be least reliant on out-
side assistance, if they are not grouped to-
gether in highly organized camps, but rather
reside in small, less formal groups.
30. The interests and needs of specific
groups of refugees, particularly vulnerable
ones, are better cared for and such efforts
are more sustainable if community support
and involvement is harnessed right from the
start. In addition, refugee involvement helps
ensure that the emergency response addresses
social, human and emotional needs, and goes
beyond the provision of material relief.
Be Aware of Social and Economic Roles
31. It is essential to understand socio-
economic factors when planning and imple-
menting the emergency response to avoid
unintentionally depriving some refugees of
the benefits of assistance. This is often true for
women, children, the elderly and the disabled.
UNHCR pays particular attention to the needs
of these groups, especially in emergencies. It is
important that the basic needs of vulnerable
groups (physically, mentally, or socially disad-
vantaged) are met. Thus in the ning and im-
plementation of an emergency response, vul-
nerable groups must be identified and
monitored systematically to ensure that they
are not further disadvantaged. If necessary,
special measures should be taken to meet
their particular needs.
32. Even in an emergency, refugees are likely
to have some form of representation, through
a community or group organization.
It is also through an effective use of their re-
presentation that refugees’ rights can be better
promoted. However, be aware that leaders
may sometimes not be representational, or
may have an agenda or objectives which could
have adverse consequences on other refugees.
Do Not Treat Issues in Isolation
33. In all stages of an emergency, the prob-
lems and needs of refugees must be seen
comprehensively, and sector-specific tasks be
set within a multi-sectoral framework, since
action in one area is likely to affect others. For
example the real solution to a health problem
might be found in improving the water sup-
ply. Ensure the correct balance in resource
allocation between the different sectors.
Ensure Environment is Considered at an
Early Stage
34. Similarly, issues which are cross-cutting in
nature should not be neglected. This is often
the case with issues concerning vulnerable
groups, children, women, and the environ-
ment. Environment concerns must be taken
into account from the earliest stage. In an
emergency involving large-scale population
displacements, some environmental damage
is unavoidable. Such damage can have an
adverse effect on the health and well-being of
the refugees and their host community. The
emergency phase is therefore, a critical time
to institute measures which limit environmen-
A multi-sectoral approach must be a funda-
mental feature of an emergency response.
It is important to find out exactly what kind
of leadership structure exists.
To plan and manage an emergency res-
ponse effectively, the social and economic
roles of refugee women, men and children
must be properly analyzed and understood
to see how these roles will affect and be
affected by, planned activities 3
.
It is important to encourage refugee partici-
pation at all stages of planning and imple-
mentation.
7
3
In UNHCR this method for assessment and planning is
known as “People Oriented Planning”, and discussed in
detail in A Framework for People-Oriented Planning in
Refugee Situations Taking Account of Women, Men and
Children, UNHCR, Geneva 1992

tal degradation. Environmental problems cre-
ated at this stage become increasingly difficult
and costly to redress. Every effort should be
made to prevent, or at least minimize, irre-
versible environmental impacts caused by the
emergency response activities and the pres-
ence of refugees.
Work for Durable Solutions
35. When an emergency occurs, actions
taken at the very outset can have important
longer-term consequences. Clear and consis-
tent policies from the beginning will have
an important long-term effect. Similarly, the
immediate response of the international com-
munity to a major influx of refugees must
take into account the ultimate aim of promot-
ing a durable solution to the problem. This
requires that the response both encourages
the self-reliance of the refugees and reduces
prolonged dependency on outside relief, and
that it does nothing to prevent the promotion
of a long-term solution as soon as possible.
36. As a general principle, the best solution
is voluntary repatriation. Where this is not
possible, assimilation within the country of
asylum (local settlement) is in most circum-
stances preferable to assimilation within an-
other country (resettlement), particularly for
large groups and in cases where resettlement
would take place in a cultural environment
alien to the refugees. There may, however, be
situations in which resettlement is the only
way to ensure protection.
Monitor and Evaluate the Effectiveness
of Response
37. Whatever the nature of the emergency,
the action required of UNHCR is likely to vary
with time and as circumstances change.
This will require sound monitoring, reporting
and evaluation systems, including indicators,
to detect deterioration or change, and also a
continuous review of the aims of UNHCR's
assistance, both in terms of bringing the emer-
gency to an early end and for the promotion
of a durable solution.
38. Such monitoring must also ensure that
the funds provided voluntarily to UNHCR by
governments and others are being used to the
best advantage. This is inherent in the princi-
ple of appropriate response. It should be
borne in mind that whatever funds may be
available in the early stages of an acute
humanitarian emergency, the passage of time
will produce financial constraints. Thus it is
important that actual and potential donors
see that the action proposed is indeed essen-
tial, and that its impact is effective.
It is essential that the effectiveness of the
response be kept constantly under review
and action adjusted as necessary and in
time.
8

Protection2
11
Introduction 1- 8 12
UNHCR Mandate
Legal Instruments
Refugee Definition
Protection in Emergencies 9-27 12-15
Admission and Non-Refoulement
Status Determination
Persons Excluded from Refugee Status
UNHCR’s and States’ Responsibilities
Basic Refugee Standards
Temporary Protection
Initial Actions 28-59 15-18
Introduction
Rapid Deployment, Continuing Presence and Free Access
Assessment
Ensuring Respect for Non-Refoulement
Ensuring an Understanding of UNHCR’s Mandate
Border Presence
Location of Refugees
Maintaining Contact with Local Authorities
Protection and Assistance
Registration
Women and Children
Monitoring and Reporting
Formalizing Arrangements and Written Demarches
Public Relations
Physical Safety of Refugees 60-77 18-20
Introduction
Camp Security
Reducing Tension between Refugees and the Local Community
Physical Safety in Areas of Conflict
Operations in Areas Controlled by Non-State Entities
Forced Recruitment
Combatants
Emergencies as a Result of Changes in Government Policy 78-84 20-21
Other Persons of Concern To UNHCR 85-89 21-22
Returnees
Stateless People
Internally Displaced People (IDP’s)
Durable Solutions 90-99 22-23
Voluntary Repatriation
Local Settlement
Resettlement
Emergency Resettlement Procedures
Key References 23
Annex:
Annex 1: Summary of key International Instruments 24-25

Introduction
UNHCR’s Mandate
1.
2. The need for international protection
arises from the fact that refugees, unlike ordi-
nary aliens, no longer have the protection of
their home country. International protection is
a temporary substitute for the protection nor-
mally provided by States to their nationals
abroad until the refugee can again benefit
from national protection.
3. The legal basis for securing this protec-
tion, the aim of protection, and the means to
provide it, must be clearly understood. This
chapter addresses these questions.
Legal Instruments
4. All UNHCR staff must be familiar with
the key international instruments covering
the protection of refugees. Of fundamental
importance are the following:
i. Statute of the Office of the United Nations
High Commissioner for Refugees;
ii. 1951 Convention Relating to the Status of
Refugees and its 1967 Protocol;
iii. 1969 Convention Governing the Specific
Aspects of Refugee Problems in Africa of
the Organization of African Unity (OAU);
iv. 1984 Cartagena Declaration on Refugees,
and 1994 San Jose Declaration.
5. Annex 1 lists these and other relevant
international instruments and their main pur-
pose(s).
6. Refugees enjoy basic human rights set
out in instruments such as the Universal Decla-
ration of Human Rights, and other instruments
listed in Annex 1, as well as the rights they
have as refugees which are described in the
various refugee instruments.
Refugee Definition
7. A refugee is defined as:
any person who is outside his/her country of
origin and who is unwilling or unable to
return there or to avail him/herself of its pro-
tection because of:
i. a well-founded fear of being persecuted
for reasons of race, religion, nationality,
membership of a particular social group
or political opinion;
or
ii. a threat to life or security as a result of
armed conflict and other forms of wide-
spread violence which seriously disturb
the public order.
Whether a person is a refugee is not depen-
dent on formal recognition, but on the fact of
meeting the definition of refugee.
Protection in Emergencies
8. On the spot presence and quick action
are generally crucial to the attainment of
UNHCR’s objectives, particularly where there is
danger of refoulement or abuses such as arbi-
trary detention or mistreatment.
Admission and Non-refoulement
9. The first and most urgent priority is to
ensure refugees’ right to asylum is respected,
and to ensure they are not forcibly returned
(refouled).
Non-refoulement
10. Of cardinal importance is the principle of
non-refoulement. This principle is set out in
Paragraph 1 of Article 33 of the 1951 Conven-
tion which states that:
“No Contracting State shall expel or return
(“refouler”) a refugee in any manner what-
soever to the frontiers of territories where
his life or freedom would be threatened on
account of his race, religion, nationality,
membership of a particular social group or
political opinion”.
The aim of international protection in emer-
gencies is to:
i. Ensure admission and at least temporary
asylum;
ii. Prevent forcible return (“refoulement”);
iii. Ensure refugees are treated according to
basic human rights standards.
In an emergency it must first be established
that the persons endangered are of
concern to UNHCR and thus entitled to
protection.
UNHCR’s fundamental responsibilities are to:
i. Provide international protection to refu-
gees;
and
ii. Seek permanent solutions for their prob-
lems.
12

11. The 1951 Convention provides for very
limited exceptions to the principle of non-
refoulement of refugees, namely, for those
reasonably regarded as a danger to the secu-
rity of the country where they are, or for those
who, having been convicted by a final judge-
ment of a particularly serious crime, constitute
a danger to the community of that country.
12. The principle of non-refoulement has
found specific expression in a number of inter-
national instruments adopted at the universal
and regional levels.
13. Because of its fundamental and univer-
sally accepted character, the principle of non-
refoulement has been recognized as a prin-
ciple of customary international law, and hence
binding on all states.
Admission
14. Asylum seekers must be admitted to the
state in which they seek refuge, without dis-
crimination as to race, religion, nationality, po-
litical opinion or physical incapacity. The Uni-
versal Declaration of Human Rights states that:
“Everyone has the right to seek and to
enjoy in other countries asylum from
persecution”.
15. The General Assembly, on adopting the
UNHCR Statute, called on governments to
cooperate with the High Commissioner in the
performance of his/her functions by, admitting
refugees to their territories.
16. Refugees may not be able to meet
normal immigration requirements because of
their flight. The 1951 Convention obliges
states not to penalize refugees for having
entered their host country without the legally
required formalities.
Status Determination
17. Refugees may be recognized either on
the basis of “prima facie” group determination,
or following individual status determination.
18. At the outset of an emergency when
asylum-seekers arrive in large numbers over
a short period of time, it is often impractical
to resort to an individual determination of
refugee status for each member of the group.
In most emergencies those seeking refuge
may be of concern to UNHCR, and the Statute
calls for action on their behalf. When protec-
tion is clearly an urgent humanitarian need,
the benefit of the doubt has to be accorded at
least until a considered opinion is available.
19. In such circumstances, UNHCR and states
usually resort to refugee status determination
for the entire group based on their knowl-
edge of objective conditions in the country of
origin. Every member of the group is thus con-
sidered a refugee prima facie, i.e. a refugee in
the absence of evidence to the contrary.
Persons Excluded From Refugee Status
20. Certain persons do not fall under the High
Commissioner’s competence and are excluded
from protection. These are persons with respect
to whom there are serious reasons for consider-
ing that they have committed a crime against
peace, war crimes (e.g. torture or execution of
prisoners), crimes against humanity (e.g. geno-
cide), serious non-political crimes (e.g. murder
or rape) outside the country of refuge, or acts
contrary to the purposesof refuge, or that they
have been guilty of acts contrary to the pur-
poses and principles of the United Nations.
21. Headquarters must be informed immedi-
ately of such situations and as a rule, criteria
for decisions on exclusion should be taken in
consultation with Headquarters. Note that
asylum seekers can be given prima facie recog-
nition as refugees on a group basis, but can
only be excluded from refugee recognition on
an individual basis.
UNHCR and States’ Responsibilities
22. The High Commissioner’s universal pro-
tection responsibilities have been placed on
him/her by the General Assembly (Statute of
UNHCR). The exercise of the international pro-
tection function by UNHCR is not dependent
upon a request by the government concerned.
In the case of mass influx, the aim is to
secure treatment in accordance with univer-
sally recognized humanitarian principles
not necessarily directly linked to the legal
status of those in need. Speed of interven-
tion to secure protection is thus the first
priority.
Non refoulement is a principle of interna-
tional law and binding on all States irre-
spective of whether or not they are party to
the 1951 Convention or other international
refugee instrument.
Non-refoulement includes not rejecting or
turning away a refugee at the border, as
well as not returning him/her subsequent
to admission to a country where he/she
could face persecution.
Protection2
13

23. In countries that are parties to the rele-
vant legal instruments, UNHCR’s protection
function is facilitated. The 1951 Convention
obliges States which are parties to the Conven-
tion to cooperate with UNHCR in the exercise
of its functions and in particular to facilitate
UNHCR’s duty of monitoring the application
of the Convention’s provisions. The 1969 OAU
Convention contains a similar clause.
24. Even when an emergency occurs in a
country not party to the relevant international
instruments, some of the principles embodied
in the Convention are considered customary
international law and hence are binding on all
states. Foremost amongst them is the principle
of non-refoulement. In addition, the moral
strength and standard setting value of the
conclusions of UNHCR’s Executive Committee
(EXCOM) is not limited to states which are
members of the Executive Committee (see
chapter 9 on external relations for more de-
tails on EXCOM members).
Basic Refugee Standards
25. A set of internationally recognized basic
standards of treatment applicable in refugee
emergencies has been agreed1
.
a) Refugees and asylum seekers should not
be penalized or exposed to any unfavou-
rable treatment solely on the ground that
their presence in the country is considered
unlawful; they should not be subjected to
restrictions on their movements other
than those which are necessary in the in-
terest of public health and public order;
b) They should enjoy the fundamental civil
rights internationally recognized, in parti-
cular those set out in the Universal Decla-
ration of Human Rights;
c) They should receive all necessary assis-
tance and be provided with the basic ne-
cessities of life including food, shelter and
basic sanitary and health facilities; in this
respect the international community
should conform with the principles of in-
ternational solidarity and burden-sharing;
d) They should be treated as persons whose
tragic plight requires special understand-
ing and sympathy. They shoud not be
subjected to cruel, inhuman or degrading
treatment;
e) There should be no discrimination on the
grounds of race, religion, political opin-
ion, nationality, country of origin or physi-
cal incapacity;
f) They are to be considered as persons be-
fore the law, enjoying free access to courts
of law and other competent administra-
tive authorities;
g) The location of asylum seekers should be
determined by their safety and well-being
as well as by the security needs of the
receiving State. Asylum seekers should, as
far as possible, be located at a reasonable
distance from the frontier of their country
of origin. They should not become in-
volved in subversive activities against their
country of origin or any other State;
h) Family unity should be respected;
i) All possible assistance should be given for
the tracing of relatives;
j) Adequate provision should be made for
the protection of minors and unaccompa-
nied children;
k) The sending and receiving of mail should
be allowed;
l) Material assistance from friends or rela-
tives should be permitted;
m) Appropriate arrangements should be
made, where possible, for the registration
of births, deaths and marriages;
n) They should be granted all the necessary
facilities to enable them to obtain a satis-
factory durable situation;
o) They should be permitted to transfer as-
sets which they have brought into a terri-
tory to the country where the durable
solution is obtained; and
p) All steps should be taken to facilitate
voluntary repatriation.
Temporary Protection
26. Some countries adopt a narrow defini-
tion of the term “refugee” which does not en-
compass those persons who are fleeing from
armed conflict (such persons are considered
refugees within the definition contained in, for
example, the OAU Convention). In countries
with a narrow definition, the term “temporary
protection” has been used to describe protec-
tion extended to categories of persons clearly
in need of international protection, but in re-
spect of whom recognition as refugees would
14
1
These were adopted by UNHCR’s Executive Committee
in 1981, Conclusion No 22.

present difficulties, either because they would
not fall under the narrow definition, or be-
cause individual status determination would
not be practical in view of the numbers of per-
sons involved.
27. The basic elements of temporary protec-
tion include:
i. Admission to the country of refuge;
ii. Respect for basic human rights, with treat-
ment in accordance with internationally
recognized humanitarian standards (e.g.
those basic refugee standards listed above);
iii. Protection against refoulement;
iv. Voluntary repatriation when conditions in
the country of origin allow. Persons admit-
ted to a country under a temporary pro-
tection scheme generally are not provided
access to the full range of benefits ac-
corded to individuals who are recognized
as refugees.
Initial Actions
Introduction
28. The legal basis on which UNHCR inter-
venes to secure the protection of refugees is
contained in the instruments mentioned
above. Frequently the practical course of ac-
tion to be adopted is, however, of more con-
cern than the legal instruments themselves.
29. In order for UNHCR to effectively dis-
charge its protection mandate, the staff of the
organization must have free and unhindered
access to all refugees and asylum seekers irre-
spective of their location.
30. It should be borne in mind that action
taken at the outset of an emergency may have
significant long-term consequences, both for
continued protection, including perhaps for
other groups of refugees within the country,
and for the promotion of durable solutions.
Rapid Deployment, Continuing Presence and
Free Access
31. The first priority is rapid deployment of
staff.
Free access and continuing presence are the
vital practical support to ensuring UNHCR’s
mandate. Sufficient female staff must be
present as this will help ensure that women
refugees can express protection problems, and
that these problems are recognized and dealt
with appropriately.
Assessment
32. Good protection requires good informa-
tion. UNHCR staff, often together with local
officials, should visit all points of influx and
refugee locations to gather information from
refugees regarding the issues and questions
set out in Annex 1 to chapter 5 on initial
assessment (in particular those relating to who
the refugees are, where they are from, why
they have fled and identification of vulnerable
groups). In addition, the refugees should be
asked about the situation along the flight
route and any problems encountered upon
entering the country of refuge.
33. Sources of information must be devel-
oped and direct communication with contacts
established in the field to ensure that UNHCR is
quickly informed of any new influx or protec-
tion problem. Such open lines of commu-
nication are especially important for border re-
gions which are remote from the capital, where
UNHCR may not yet have a local presence.
34. Potential sources of information include:
❏ Asylum seekers themselves;
❏ Local or central government authorities;
❏ Community and religious leaders;
❏ National and international NGOs;
❏ ICRC, if present;
❏ Other UN and international organizations;
❏ National (particularly local language) and
international news media.
35. If possible the central authorities should
participate in fact finding missions, as this
reduces the risk of misunderstanding between
UNHCR and the central authorities and bet-
ween the central and local authorities.
Ensuring Respect for Non-refoulement
36. The best way to ensure respect for the
principle of non-refoulement and basic human
rights is to create awareness among national
authorities at all levels. In a crisis situation, it
may not be possible to provide formal train-
ing, but in daily contacts with camp autho-
A continuing UNHCR presence with direct
and unhindered access to refugees should
be established in the area concerned for as
long as required.
Often protection depends less on the fine
print of a statute and more on swift appro-
priate action by UNHCR field staff.
Protection2
15

rities, local authorities, army personnel and
border officials, the principle of non-refoule-
ment must be made clear. Give concrete exam-
ples to the authorities of what can happen to
a refugee who is returned: it can mean loss of
life. Awareness may also need to be raised in
the local population – the media may provide
a forum – and public opinion can be an impor-
tant influence.
Ensuring an Understanding of UNHCR’s
Mandate
37. The basis for UNHCR's concern and in-
volvement should be explained in as practical
terms as possible. Local officials may not know
of UNHCR's mandate, nor of the assistance
which UNHCR may already be giving else-
where in the country.
Border Presence
38. Develop good contact with border au-
thorities and monitor cross border move-
ments: this also helps provide contact with the
refugees, and gives information about what is
happening in the country of origin as well as
potential problems in border crossings on
both sides of the border. If it is not possible for
staff to be present at all border crossing points
on a permanent basis, each crossing point
should be checked frequently.
39. Any protection problems relating to the
admission or treatment of refugees at the
border should be brought immediately to the
attention of the competent authorities in the
host country and any other country involved,
for urgent remedial action.
Location of Refugees
40. Refugees should be accommodated suffi-
ciently far away from the borders of the coun-
try of origin to avoid security problems.
Maintaining Contact with Local Authorities
41. At both the local and central level, there
must be assured access at all times to those
officials whose decisions will affect the
refugees' situation. Establish who they are,
contact them and if possible request home
telephone numbers and other means of com-
munication so that if a protection problem
arises it can be brought to the right official's
attention at once. Refoulements often take
place very rapidly.
42. The most senior local official directly
responsible should be approached and re-
quested to allow (at least temporary) asylum.
In some cases this may be the local military
commander for a region.
43. NGOs may be able to advise on the local
infrastructure and decision-making process,
and influential local personalities, such as com-
munity or religious leaders, may be helpful.
44. Local authorities should be kept infor-
med of demarches UNHCR has made or intends
to make in the capital – these should not only
be the demarches of a political or formal
nature, but also those covering practical and
assistance aspects of the programme.
Protection and Assistance
45. Protection and material assistance should
be planned as complementary parts of a single
UNHCR operation. Assistance cannot be pro-
vided without assured asylum and without
life-sustaining material assistance, protection
alone will not preserve the lives and well-being
of the refugees. There should be an early indi-
cation that UNHCR's intervention may result in
material assistance – in other words, that the
granting of asylum and meeting of immediate
needs will not be a burden on local authorities’
budgets. Field Officers must receive early guid-
ance contained in section III on the extent to
which commitments on material assistance
may be given, in order to communicate this
information with local authorities. If the influx
consists of additional asylum seekers clearly
belonging to a group already assisted by
UNHCR, a firm assurance of material assistance
within the means available is usually given.
Although the link between such assistance and
protection responsibilities is self-evident to
UNHCR, it should be borne in mind that the
connection is not necessarily so clear to local or
central authorities.
Registration
46. A registration exercise should be con-
ducted at the earliest possible stage of an
emergency operation (for more details see
chapter 11 on population estimation and reg-
istration).
Women and Children
47. Refugees, and in particular women and
children, travelling alone or in small groups in
The approach should stress that the work
of the High Commissioner is of an entirely
non-political character and is strictly hu-
manitarian and social.
16

remote border areas, are very vulnerable to
extortion, abuse and sexual violence. A pro-
active approach is needed to ensure that
protection needs are met.
UNHCR considers a child to be:
a person below the age of 18 years,
unless, under the law applicable to the
child, majority is attained earlier,
as defined in the Convention on the Rights of
the Child.
Note that gender-related persecution can be
considered a ground for recognition under
the definition of refugee.
UNHCR’s Guidelines on the Protection of
Refugee Women, and Refugee Children:
Guidelines on Protection and Care (see key
references) are essential reading for those de-
signing a protection programme. More infor-
mation on the procedures noted below is
contained in section III of the Handbook, in
particular chapter 10 on community services.
48. Prevent protection problems for refugee
women and children through good pro-
gramme design in all sectors, including:
❏ Obtaining a good knowledge of the popu-
lation profile, especially the breakdown by
sex and age;
❏ Preserving the original family and commu-
nity structures;
❏ Consulting women on the design of the as-
sistance programme, in particular on the
design of the refugee camp and on the
commodity distribution system;
❏ Locating services so as not to expose
refugee women to additional risk when
using them;
❏ Providing lighting in the camp especially
along paths to latrines;
❏ Ensuring an adequate number of women
staff, particularly protection, community
services and health staff;
❏ Forming security patrols among the refu-
gees themselves having the protection of
women as a priority;
❏ Providing training for police and military
personnel on the rights of women and chil-
dren, especially in circumstances where
there is a heavy military or police presence;
❏ Initiating tracing as soon as possible. Ap-
propriate measures must be taken for iden-
tification, documentation, tracing, interim
support and family reunion of separated
children (see chapter 10 on community
services for more information on unaccom-
panied children);
❏ Providing structured activities and primary
schools for children (this can be important
as a protection tool as it can help reduce
recruitment into armed forces);
❏ Targeting assistance to remove the need
for child labour;
❏ Issuing birth certificates. Birth registration
may be a prerequisite for obtaining natio-
nality, enrolling in school and may be a vital
tool for tracing. It can also be important in
preventing military recruitment and other
forms of exploitation.
Help Children by Helping the Family; Support
Women to Preserve Family Unity.
Actively work to preserve family unity. Mea-
sures to promote the health and physical
security of refugee women can help prevent
separation of mother and child. A family,
whose members have become separated or
who are under serious stress, puts children at
particular risk. Give priority to helping parents
and other child care-givers meet the needs of
their children. Also, recognize the parents'
own needs. Families may need assistance in us-
ing their own coping techniques and rebuild-
ing their support networks. Make every effort
to preserve or reconstitute family help net-
works. Family groups wishing to live together
should be helped to do so.
Monitoring and Reporting
49. Once immediate protection is secured,
arrangements must be made to monitor the
situation and ensure continuing respect of the
rights of the refugees.
50. Immediate, clear and regular reports of
developments, action taken and intended to
be taken are important, whether from the
Field Officer to the Head of Office or from the
latter to Headquarters. Guidance must be re-
quested as necessary and Headquarters level
interventions recommended as appropriate.
See Annex 3 to chapter 8 on implementing
arrangements, for a standard situation report.
51. A prerequisite for intervention with a
government, or for mobilization of interna-
tional support, is accurate situation reporting.
The single best way to promote the protec-
tion, well-being and safety of children is to
support their families.
Protection2
17

Formalizing Arrangements and Written
Demarches
52. Any temporary or ad hoc agreements
with the authorities should be formalized, as
for example that covering the local UNHCR
presence. Reference should be made to pro-
tection and durable solutions in any formal
exchanges governing the provision of material
assistance.
53. As a general rule, a written demarche
should be made as soon as possible to the
central authorities at the highest appropriate
level. This level, and the form of the demarche,
will be determined by the nature of UNHCR's
presence in the country. A demarche by a newly
arrived mission would normally be addressed to
the Minister of Foreign Affairs (or perhaps Inte-
rior; the advice of UNDP and/or embassies
should be sought). The communication might:
i. Refer to the information available to
UNHCR on the influx or problem (qualify-
ing it as necessary: the government will
often know more than UNHCR);
ii. State UNHCR's view that persons involved
are or may (as applicable) be of concern to
the High Commissioner;
iii. Refer to the government's protection re-
sponsibilities;
iv. Request (confirm understanding, express
gratitude for, etc.) assurances that persons
will be granted (at least temporary) asylum
(if appropriate: pending determination of
status and longer-term arrangements);
v. Offer, where persons are found to be of
concern to UNHCR, commitment in prin-
ciple to provide material assistance (for
example, "every effort" formula).
54. The text of representative level de-
marches should be communicated to Head-
quarters at once both for information and in
order that they may be shared with the
permanent mission and/or referred to in any
subsequent Headquarters level demarches.
Likewise, the texts of the latter should of
course be shared at once with the field.
55. Representatives should immediately rec-
ommend action at the Headquarters level if
they are in doubt that their interventions
alone will secure protection.
56. New oral and written demarches must be
made if there are any grounds for concern that
protection is still not adequately assured (re-
foulement, abduction, arbitrary detention,
mistreatment, abuse of women and children
etc.). Complementary action at the local level
should both closely monitor developments af-
fecting protection, and concentrate to the ex-
tent possible on assisting the authorities to
meet the practical problems of the influx.
Public Relations
57. In certain circumstances tensions in rela-
tions between neighbouring countries may
make it necessary to stress even at the local
level that the granting of asylum is a purely
humanitarian act.
58. Particular attention should be paid to
briefing other UN organizations and the
diplomatic community, especially those inter-
ested governments whose influence may be
able to facilitate protection (for example, by
an early indication of support for UNHCR
and/or of intent to contribute financially to
the UNHCR operation).
59. Visits by national and international me-
dia and the diplomatic corps may help achieve
a broader appreciation of UNHCR's protection
function. The position to be taken with regard
to the media will depend very much on the
circumstances and whether or not publicity
would help protect persons of concern to
UNHCR. Close coordination within the various
levels of UNHCR is necessary. Where UNHCR is
already represented, previously established
good contacts with the locally based (and es-
pecially local language) media may prove a
valuable source of information and is useful in
advancing an understanding of UNHCR's role.
General guidance regarding media relations is
provided in chapter 9 external relations.
Physical Safety of Refugees
Introduction
60. Even after they have been admitted to a
country of refuge, refugees may still face seri-
ous threats to their safety. In emergencies,
some basic human rights are particularly
Emphasize that the granting of asylum is
purely humanitarian and therefore not a
hostile act, and that UNHCR's presence and
involvement may help reduce tension.
Field staff at the site, anxious to provide im-
mediate help, must remember that unless
information gathered locally is shared, its
usefulness is limited.
18

threatened and will need to be specially pro-
tected by law as well as by action. These
threats may originate from the country of
origin or of asylum or from groups among the
refugees themselves.
Camp Security
61. Threats of military attacks originating
from the country of origin may be reduced by
locating or relocating camps or settlements a
reasonable distance from the border (see
chapter 14 on site planning). In addition the
authorities of the country of asylum may have
to increase their military presence in the
border area and around refugee settlements.
However, military presence inside refugee
camps or settlements should be avoided.
62. In the country of refuge, threats to physi-
cal safety of refugees (refoulement, unlawful
detention, sexual violence, etc.) may emanate
from officials dealing with the refugees.
63. Corrective action is in the hands of the
authorities and must be taken resolutely.
UNHCR must maintain contact with the refu-
gees and the authorities to ensure that there
is adequate response.
64. Criminal attacks and banditry against
refugees should be addressed by civil authori-
ties and security forces of the host country in
close cooperation with UNHCR and the
refugee community.
65. In situations where armed individuals are
part of the refugee population, UNHCR
should encourage the screening of the whole
population and the separation of refugees
from armed individuals, as well as their disar-
mament.
66. In all cases of military and police pres-
ence, general measures as described in para-
graph 48 such as awareness campaigns and
training for protection of the rights of refugee
women and children are important in order to
prevent sexual violence against them.
67. In cases of internal conflicts among the
refugee population UNHCR should initially
encourage a mediation by the refugee com-
munity. If this fails, UNHCR should request the
authorities of the host country to resolve the
conflict.
Reducing Tension Between the Refugee and
the Local Community
68. In situations which may give rise to ten-
sion and conflict between the refugee com-
munity and the local population, the follow-
ing measures may be considered in addition to
action to address the specific causes of the
problem:
i. Arranging regular meetings between the
representatives of the refugees and the
leaders of the local community;
ii. Sensitizing the local population to the
plight of the refugees through local media
(programmes on radio and TV, articles in
newspapers) and community leaders;
iii. Sensitizing refugees to local customs and
traditions;
iv. Ensuring that sufficient assistance is mo-
bilized so that the presence of refugees
does not impact negatively on scarce local
resources;
v. Benefiting the local community through
improvements in infrastructure in the areas
of water, health, roads, etc.
69. As a measure of protection, UNHCR staff
should encourage and support the organiza-
tion of the refugee community and ensure its
involvement alongside local authorities and
communities, in all aspects of the administra-
tion of the refugee settlement. Women and
adolescents should be included in such organi-
zations, particularly those dealing with issues
affecting their security. Other actions should
include UNHCR presence in refugee camps and
special training in international refugee stan-
dards and norms for all officials dealing with
refugees.
Physical Safety in Areas of Conflict
70. International humanitarian law2
provides
protection to civilians including refugees in
situations of armed conflict. In non-interna-
tional conflicts (i.e. internal armed conflict but
not police operation), all parties to the conflict
are bound by the 1949 Geneva Conventions to
respect all persons not taking an active part in
the hostilities, and in particular:
i. To treat them humanely and without dis-
tinction as to race, religion, sex, birth,
wealth or any other similar criteria;
The authorities of the country of asylum
must be made aware of the fact that they
retain primary responsibility for security
and must ensure the safety and well-being
of refugees.
Protection2
19
2
The four Geneva Conventions of 1949 and their two
Additional Protocol of 1977 deal with protection of civil-
ians in armed conflicts.

ii. To refrain from violence to life and person;
iii. Not to take hostages;
iv. To respect personal dignity;
v. Not to pass sentences or carry out execu-
tions without due process of law;
vi. To collect and care for the wounded and
sick.
71. The International Committee of the Red
Cross (ICRC) is the agency charged with super-
vising the implementation of international
humanitarian law in situations of armed
conflict. In most situations of armed conflict or
civil strife, the ICRC offers its services to all
parties to assist victims and ensure the protec-
tion of civilian populations – including, where
applicable, refugees and other displaced pop-
ulations – as well as detained combatants.
72. UNHCR staff should seek the coopera-
tion of the ICRC, wherever it is present, and
benefit from its expertise in dealing with state
and non-state parties alike in situations of
armed conflict.
Operations in Areas Controlled by Non-state
Entities
73. In situations of civil strife or internal
armed conflict, particular difficulties may arise
from the fact that UNHCR’s interlocutors are
not states or regular armed forces answerable
to states, but insurgent groups and other non-
state entities. UNHCR may have no choice but
to deal with these groups as they exercise de
facto control over a refugee population. It will
be important to highlight the impartial, non-
political and humanitarian role of UNHCR and
to exercise public pressure in order to convince
these groups of the importance of adhering to
humanitarian and refugee law. However,
when dealing with these groups, UNHCR
should not imply, through any of its actions or
correspondence, a formal recognition of these
non-state entities by the United Nations.
Forced Recruitment
74. Another protection issue likely to arise
where refugees find themselves in or near a
conflict zone is that of forcible recruitment of
refugees by one or more parties to the con-
flict. In confronting this issue, UNHCR staff
must remember – and remind the authorities
– that:
i. The civilian character of refugee camps and
settlements must be preserved and respec-
ted in all circumstances. Therefore recruit-
ment of any age group for military and
paramilitary purposes is unacceptable;
ii. Recruitment by force may amount to cruel,
inhuman or degrading treatment, which is
prohibited in all circumstances;
iii. Recruitment and direct participation in
hostilities of minors under 15 years of age
is prohibited, and UNHCR advocates the
non-involvement of all children under 18,
whether they are required to participate
directly in hostilities or to perform support
tasks;
iv. Where refugees are forced or coerced to
return to their country of origin to fight,
this is tantamount to refoulement, which is
prohibited in all circumstances.
Combatants
75. UNHCR is not competent to intervene on
behalf of combatants. Combatants placed
hors de combat (sick, wounded, shipwrecked
and prisoners of war) are primarily protected
by international humanitarian law, and fall
under the competence of the ICRC.
76. An ex-combatant may qualify as a refu-
gee if a well-founded fear of persecution can
be established, and if there are no serious rea-
sons for considering that the person should be
excluded3
.
77. Finally, note that simply because a per-
son is carrying a weapon does not mean that
he/she is a combatant – in some societies,
carrying weapons e.g. knives, is traditional.
Emergencies as a Result of Changes in
Government Policy
78. A special type of protection emergency
can occur as the result of a sudden change,
for whatever reason, in government policy
towards persons of concern to UNHCR already
on its territory. Those affected may include
both persons known to UNHCR and recog-
nized as refugees, and others who have
hitherto neither formally requested asylum
nor made themselves known to UNHCR, but
who may nevertheless fall within the High
Commissioner's competence.
79. The action to take in protection emer-
gencies of this type will vary greatly in each
case and only very general guidance can be
given. Accurate information, a UNHCR pres-
20
3
See Note on the Application of Exclusion clauses, IOM/83/
96 FOM/93/96, UNHCR, 1996.

ence where needed, and a clear and consis-
tent policy in defence of the rights of the
refugees will always be required. The guide-
lines that follow must be modified as neces-
sary in light of the actual situation. Some of
the considerations discussed in the previous
sections may also be relevant.
80. UNHCR should immediately try to iden-
tify and if possible establish a list of persons
who are, or may be at risk but were not previ-
ously known to UNHCR staff. This list must be
constantly updated. Sources of information
include the diplomatic community (some per-
sons may approach or even seek asylum in
embassies), the ICRC, the national Red Cross or
Red Crescent society, churches and NGOs. Care
should be taken to ensure the confidentiality
of individual cases when establishing contacts
with Embassies. Early identification, and, if
possible registration of, these new cases by
UNHCR can often be a very important source
of protection.
81. UNHCR must maintain (or in the case of
a new régime establish) close and continuing
cooperation with the authorities. If the coun-
try has acceded to the relevant international
instruments, these obligations remain bind-
ing, whatever new policies may be adopted. If
the country is not a party to any of the
refugee instruments, the Statute and universal
instruments must be invoked.
82. The government is, of course, responsi-
ble for the physical security of the refugees.
Every effort must be made to encourage the
government to protect refugees, particularly
during any periods of civil tension. The imme-
diate aim is that refugees should be able to
remain in safety in their present country of
asylum. Respect of the principle of non-
refoulement is of paramount importance.
83. There may be circumstances in which
movement of the refugees to another country
is necessary as a last resort. Such moves are
quite different from large-scale resettlement
as a durable solution. They may be necessary
either as a result of a direct request from the
government or where no other way of pro-
tecting the refugees exists. Immediate ap-
proaches to potential countries of asylum
must be made at both local, embassy, and
Headquarters levels. Receipt of resettlement
offers may have an important influence on
the government's attitude towards the
refugees. Operational partners must be identi-
fied. In addition to locally-based NGOs, the as-
sistance of the ICRC (for example, with travel
documents) and the International Organiza-
tion for Migration (IOM) may be sought.
84. In extreme and tense situations where
refugees lives were threatened, there were
cases where some form of “safe Haven” for
refugees have been established. However,
UNHCR’s experience with “safe havens” de-
monstrated that refugees often could not be
provided with adequate protection and con-
tinued to be exposed to high risks. It is there-
fore not recommended to formally establish
“safe havens”.
Other Persons of Concern to UNHCR
85. In addition to refugees as defined by the
relevant international instruments (see para-
graph 7 above), UNHCR has also been empow-
ered to extend protection to the following
categories. Refugees, as well as the categories
of persons described below, are often referred
to as “persons of concern to UNHCR”.
Returnees
86. Returnees are refugees who return
voluntarily to their country of origin and who
formally cease to be refugees as soon as they
cross the border. UNHCR has been entrusted by
the UN General Assembly to protect and assist
returnees, both during the journey and once
back in the country of origin and to facilitate
finding durable solutions to their problems.
Stateless Persons
87. A stateless person is a person who is not
considered as a national by any country. The
Universal Declaration of Human Rights states
that everyone has a right to a nationality and
no one should be arbitrarily deprived of
his/her nationality or of the right to change
his/her nationality. The main international in-
struments dealing with statelessness are listed
in Annex 1. UNHCR has been designated as
the body which can assist stateless persons in
presenting their claims to appropriate authori-
ties, and in providing technical and advisory
services to states on the preparation and im-
plementation of nationality legislation.
Internally Displaced Persons (IDPs).
88. IDPs can be broadly defined as persons
who have been forced to flee their homes
suddenly or unexpectedly in large numbers
Protection2
21
4
See: UNHCR’s Role with Internally Displaced Persons,
IOM87/97, FOM 91/97, UNHCR, 1997.

as a result of armed conflict, internal strife,
systematic violations of human rights or natu-
ral or man-made disasters and who are within
the territory of their country.
Considerations Regarding UNHCR
Involvement with IDP’s.
89. The main requirements for UNHCR’s in-
volvement with the internally displaced4
are :
i. A specific request from the UN General
Assembly, the Secretary General or other
competent principle organ of the UN;
ii. The consent of the concerned state or
other relevant entity;
iii. The relevance of UNHCR’s expertise to
assist, protect and seek solutions for inter-
nally displaced persons in the particular
situation;
iv. The availability of resources for the activi-
ties in question.
Criteria for Involvement
Certain situations may demonstrate the use-
fulness of UNHCR’s involvement. These are sit-
uations which present a clear link with activi-
ties UNHCR undertakes in fulfillment of its
mandate, for example where internally dis-
placed populations are, or are likely to be,
mixed with returnee populations, or where
the same causes have produced both internal
displacement and a refugee flow, or where
there is a risk of cross-border expansion of the
internal displacement. Where the link with
mandated activities is not present, UNHCR
may consider involvement with IDPs to atten-
uate the causes of internal displacement and
contribute to conflict resolution through hu-
manitarian action.
Measures to Assist IDPs
Measures to assist IDPs are broadly similar to
those used for refugees. However, by defini-
tion, IDPs remain within their own country,
and it is the national laws of that state which
provide the framework for their protection
and rights, rather than specific international
legal instruments. Universal human rights in-
struments, of course, also apply to IDPs.
The presence of UNHCR staff and the staff of
other international organizations in the areas
where IDPs have sought safety has proven
helpful in encouraging authorities and parties
to the conflict to respect national laws and
universal human rights.
Durable Solutions
From the outset of an emergency, UNHCR must
bear in mind the ultimate objective of refugee
protection: to help refugees to overcome dis-
placement and achieve a solution whereby
national protection is re-established and they
will no longer be refugees.
Voluntary Repatriation
90. Most large scale refugee emergencies
are eventually resolved through the voluntary
repatriation of refugees once the danger they
have fled from has been removed or signifi-
cantly reduced. See chapter 19 on voluntary
repatriation.
Local Settlement
91. Local settlement means assimilation
within the country of asylum. In the case of
prolonged conflicts, refugees often at least
de facto integrate into the host society. It is
important in such situations that they should
have official status in the country of asylum,
a starting point for which should be recogni-
tion as refugees under the 1951 Convention.
Resettlement
92. Resettlement (meaning assimilation
within another country) should be considered
when refugees cannot repatriate or cannot
settle in the country of first asylum, or are at
risk in their country of refuge. The decision to
resettle is taken when there is no other way to
eliminate the danger to the legal or physical
security of the persons concerned. Resettle-
ment under the auspices of UNHCR is strictly
limited to mandate refugees who have a con-
tinued need for international protection.
Emergency Resettlement
93. Emergency resettlement can be consid-
ered where there is:
i. An immediate threat of refoulement to
the country of origin;
ii. An immediate threat of expulsion to an-
other country from where the refugee may
be refouled;
iii. A threat of arbitrary arrest, detention or
imprisonment;
iv. A threat to physical safety or human rights
in the country of refuge analogous to that
under the refugee definition and render-
ing asylum untenable.
22

Protection2
23
94. Categories of refugees who can be con-
sidered for emergency resettlement include:
survivors of violence and torture, refugees
with serious medical conditions which cannot
be treated in the country of asylum, women-
at-risk, children and adolescents. Priority
attention should be given to those refugees
with acute legal and physical protection
needs such as women-at-risk, and unaccom-
panied children for whom a determination
has been made that resettlement is in their
best interests.
Emergency Resettlement Procedures
95. Emergency resettlement must be used
selectively and on the basis of a thorough and
objective assessment of both refugee status
and urgency of removal. Emergency resettle-
ment is undertaken when the immediacy of
security and/or medical threat faced by the
refugee necessitates the person’s removal
from the threatening conditions within a few
days, or even within hours. For the sake of
simplicity a notional limit of a maximum of
five days is understood.
96. The following information should be
sent to Headquarters immediately:
i. Full name, date of birth, place of birth, sex,
nationality and ethnic origin;
ii. Detailed status determination analysis;
iii. Whether accompanied by family (if so,
size);
iv. Details, as per (i), of each family member to
accompany the candidate;
v. Explanation of the need(s) for resettle-
ment;
vi. Justification for emergency categorization,
and required time-frame for departure;
vii. Whether valid travel documents are held
by all the refugees concerned;
viii.In case of medical emergency: diagnosis,
prognosis, current condition of refugee
(and family members if relevant), and
whether an escort is needed;
ix. Recommendation on countries of resettle-
ment and reasons, including third country
links.
97. Detailed data in a duly completed Reset-
tlement Registration Form (RRF) with support-
ing documentation must follow as soon as
possible.
98. The RRF can be obtained from the Reset-
tlement and Special Cases Section at Head-
quarters. This is the section of the Division of
International Protection that is responsible for
processing emergency submissions. In addition,
the Section helps coordinate and support
the resettlement of difficult protection and
special needs cases. It should be contacted for
advice.
99. Additional information may be found in
the UNHCR Resettlement Handbook.
Key References
Collection of Conclusions on the International
Protection of Refugees adopted by the Executive
Committee of the UNHCR Programme, UNHCR
Geneva, 1995.
Collection of International Instruments Concern-
ing Refugees, UNHCR, Geneva, 1995.
Guidelines on the Protection of Refugee Women,
UNHCR Geneva, 1991.
Guidelines on Policies and Procedures in dealing
with Unaccompanied Children Seeking Asylum,
WHO, Geneva, 1997.
Handbook for Determining Refugee Status,
UNHCR, Geneva 1979.
International Legal Standards Applicable to the
Protection of Internally Displaced Persons, UNHCR,
Geneva, 1996.
Refugee Children: Guidelines on Protection and
Care, UNHCR, Geneva 1994.
Refworld CD-ROM, UNHCR, Geneva, (updated
regularly).
Sexual Violence Against Refugees: Guidelines on
Prevention and Response, UNHCR, Geneva, 1995.
UNHCR Resettlement Handbook, UNHCR, Geneva,
1997.
UNHCR’s Role with Internally Displaced Persons,
IOM 87/97, FOM91/97, UNHCR, Geneva, 1997.

24
1951 Statute
1951 Convention
1967 Protocol
OAU Convention
i. Cartagena
Declaration
ii. St. Jose
Convention
Excom Conclusions
The UN Charter
Universal Declaration
of Human Rights
Convention Relating
to the Status of
Stateless Persons
Convention on the
Reduction of State-
lessness
Statute of the Office of the United Na-
tions High Commissioner for Refugees.
1951 Convention Relating to the Sta-
tus of Refugees, and 1967 Protocol Re-
lating to the Status of Refugees.
OAU Convention governing the spe-
cific aspects of refugee problems in
Africa (Organization of African Unity,
Addis Ababa, 1969).
i. Cartagena Declaration on Refugees,
1984.
ii. American Convention on Human
Rights, “Pact of San Jose, Costa Rica”,
1969.
Various conclusions on international
protection adopted by UNHCR’s Execu-
tive Committee.
The Charter of the United Nations,
1945.
Universal Declaration of Human Rights,
1948.
Convention Relating to the Status of
Stateless Persons, 1954.
Convention on the Reduction of State-
lessness, 1961.
The Statute of the High Commissio-
ner’s office, adopted by General As-
sembly Resolution 428 (V) of 14 De-
cember 1950. This sets out UNHCR’s
function and responsibility to provide
international protection and to seek
permanent solutions to the problem of
refugees. It serves as UNHCR’s constitu-
tion and includes a definition of per-
sons who are of concern to the H.C.
The mandate has been modified over
time through subsequent General As-
sembly and ECOSOC resolutions.
An international treaty which is bind-
ing upon the signatory states. It sets
out the responsibilities of states which
are parties to the Convention vis-à-vis
refugees on their territories, and sets
out the obligations of the refugees.
A regional complement to the 1951
Convention and 1967 Protocol. It con-
tains an expanded refugee definition
as well as provisions on safe and
peaceful asylum, burden-sharing and
voluntary repatriation.
Non binding declarations which have
greatly influenced regional policies on
refugees and asylum seekers, and con-
tain an expanded refugee definition.
Contain important guidance to States
and UNHCR.
Places certain general obligations on
member states of the United Nations
of particular relevance to UNHCR’s in-
ternational protection function.
Universal instrument setting out the
basic human rights of all persons, in-
cluding refugees.
Grants a recognized status to stateless
persons who are lawful and habitual
residents. Similar to the 1951 Conven-
tion Relating to the Status of Refu-
gees.
Contains measures to ensure that per-
sons do not become stateless.
Annex 1 – International Instruments Concerning Refugees and Related Instruments
International Instruments Concerning Refugees
Short Name Full Name Description
Related Instruments

Protection2
25
Covenant on Civil
and Political Rights
Convention Against
Torture
Convention Relating
to the Rights of the
Child
Geneva Conventions
and additional
protocols
Declaration on
Territorial Asylum
Final Act of the
United Nations Con-
ference on the Status
of Stateless Persons,
1954
International Covenant on Civil and
Political Rights 1966.
Convention Against Torture and Other
Cruel, Inhuman or Degrading Treat-
ment or Punishment 1984.
Convention Relating to the Rights of
the Child, 1989.
Geneva Convention Relating to the
Protection of Civilian Persons in Time
of War (Geneva, 1949).
United Nations Declaration on Territo-
rial Asylum, 1967.
United Nations Conference on the Sta-
tus of Stateless Persons.
Obliges states which are parties to the
Covenant to respect and ensure the
rights set out in the Covenant to all in-
dividuals (within the state’s territory
and jurisdiction), without distinction
such as race, colour, sex, language, reli-
gion, political or other opinion, natio-
nal or social origin, property, birth or
other status.
Includes the principle of non-refoule-
ment.
A comprehensive code of rights for all
children (defined as 18 years or under).
Covers the treatment of civilians in
time of war, including refugees.
ment.
ment.

Introduction 1-10 28-30
Organization of this Section
Capacity and Resources
The Key Emergency Management Functions 11-22 30-31
Introduction
Leading
Planning
Organizing and Coordinating
Controlling
Stages in Refugee Emergency Operations 23-38 31-32
Emergency Preparedness
Emergency Response
Figures and Tables
Figure 1: Considerations in Emergency Management 29
Table 1: Emergency Indicators 32
EmergencyManagement3
27

Introduction
1. There is no single blueprint for refugee
emergency management; each refugee emer-
gency is unique. However, experience shows
that emergencies tend to evolve according to
certain recognizable and documented pat-
terns.
Emergency situations do not necessarily result
in tragedy. The chance of this occurring will be
greatly reduced if the emergency is well man-
aged from the stage of preparedness on-
wards.
2. While emergency management shares
many of the characteristics of good manage-
ment in general, there are a number of distin-
guishing 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 particu-
larly high stress because of, for example,
security problems and harsh living condi-
tions;
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 re-
sources assessment and immediate response
(chapter 5). Operations planning, coordina-
tion and site level organization are dealt with
in chapters 6 and 7. Next, implementing arran-
gements are discussed, including procedures
for operations implementation and control
(chapter 8). Finally, chapter 9 on external rela-
tions covers relations with the host govern-
ment (including establishing a formal pres-
ence in the country of operations), relations
with the donor and diplomatic community
Good emergency management relies on
knowledge of these patterns and of the ef-
fective measures to deal with them.
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 considera-
tions discussed in this section in diagrammatic
form, in particular in relation to emergency re-
sponse. 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).
28

29
Contingeny
planning
Immediate
protection action
Immediate
material
assistance
Initial problem and
needs assessments
Protection and material
assistance
Authority to incur
expenditure,
deploy staff, (using
emergency procedures)
Open main office
if required, establish
on-the-spot presence
and ensure
communications
Detailed problem
and needs assessment
Plan of action, allocation
of responsibilities,
establishment of
coordination mechanisms,
logistics, etc.
Direct UNHCR action:
Mobilization of personnel,
material and organizational
resources, procurement,
contractors, etc.
Project agreements
with governement, UN,
and non-govermental
organizations
UNHCR implementing arrangements
Operational Partly operational Non-operational
Emergency assistance to refugees
Figure 1 – Considerations in Emergency Management
Outside expertise
Outside expertise
Operational
partners

Capacity and Resources
5. Emergency management can be defined as:
the organization of capacities and re-
sources to meet threats to the lives and
well-being of refugees.
6. Preparing for and responding to refugee
emergencies are tasks which require the avail-
ability 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, infor-
mation 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.
9. Capacity is an aspect of emergency man-
agement which is sometimes not given ade-
quate priority. Resources are often given more
emphasis during both the planning and oper-
ational 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 opera-
tion, attracting the necessary resources.
10.
While much of the required capacity must be
pre-existing, capacity can also be developed
during an operation.
The Key Emergency Management
Functions
Introduction
11. Certain management functions are essen-
tial throughout a refugee emergency.
These are:
❏ Leading;
❏ Planning;
❏ Organizing and coordinating;
❏ Controlling.
12. These will be required of UNHCR as an
organization and also from individuals, at all
levels, within UNHCR.
They always remain the responsibility of the
person in overall charge of the operation,
though they may be delegated to other staff.
Leading
13. This can be defined as:
the process of creating and communicat-
ing a vision for the emergency opera-
tion, and providing a clear strategic
direction for actions even in situations of
great uncertainty and risk.
14. Successful management requires leader-
ship; subject to the role of the government,
leadership may be the most important single
contribution of UNHCR to the emergency situ-
ation. Leadership requires that once decisions
are reached, they are properly implemented.
This discipline is essential in emergencies
when there is often no time to explain the
considerations involved. As far as possible,
those directly concerned should contribute to
decisions that affect them, but final responsi-
bility rests with the UNHCR officer in charge.
Planning
setting in place the process of assessing
the situation, defining immediate objec-
tives and longer term goals and the
activities to accomplish them.
16. Planning is vital both before and during
an emergency, and operations planning must
be based on detailed needs and resources
assessments.
Organizing and Coordinating
establishing systems and mechanisms to
achieve a given objective, and coordinat-
ing people and organizations so that
they work together, in a logical way,
towards the common objective.
18. It involves selecting, training and super-
vising staff, assigning and clarifying roles and
responsibilities of all those involved, and struc-
turing communication and information flow.
In an emergency, coordinating is a crucial as-
pect of organizing.
If these functions are not being performed
then it is likely that there will be serious de-
ficiencies in the management of the emer-
gency operation.
Effective emergency management requires
that the development and use of capacity be
accorded correct priority throughout the dif-
ferent phases of an operation.
Strong capacity can sometimes alleviate re-
source shortfalls by making more effective
use of limited resources.
30

Delegation of Authority and Responsibility
19. Emergency management should be or-
ganized so that responsibility and authority
are delegated to the lowest appropriate level,
and should be exercised as close to the opera-
tion or beneficiaries as is practical. Clear and
unambiguous lines of authority and reporting
should be established and communicated to
all staff.
20. The management structure should be
organized so that accountability for actions,
including management decisions, is clear.
Those who make a decision should be those
with the appropriate level of knowledge to
enable them to make that decision and
should be responsible for ensuring its imple-
mentation and follow up (including monitor-
ing). The involvement of unnecessary layers
of management, and unnecessary numbers of
people, in decisions as well as in responsibility
for implementation, confuses and diffuses
accountability. Ambiguity and lack of simplic-
ity in the definition of responsibilities also
slows action.
Controlling
monitoring and evaluating performance
in comparison with plans and initiating
changes where necessary.
22. Note that the key management func-
tions are important not only during emer-
gency response, but also in the preparedness
phase, although their relative importance in
each phase may vary. Organization and coor-
dination mechanisms, for example, should be
developed during contingency planning.
Stages in Refugee Emergency
Operations
23. The table below depicts one model of
activities as they may occur in refugee emer-
gencies. It is important to understand that the
stages and activities of a refugee emergency
operation could overlap, or occur simultane-
ously.
24. A final phase of an emergency operation
is the transition from emergency response to
longer-term support (care and maintenance)
and durable solutions (voluntary repatriation,
local integration and resettlement). The time
spent providing emergency relief should be
kept to a minimum, and planning and imple-
mentation should always take account of the
longer term. The importance of the balance
between short term and long term is seen in a
number of the vital sectors.
25. Assisting governments in seeking
durable solutions for the problem of refugees
is a mandated function of UNHCR. Durable
solutions must always be kept in mind, starting
at the contingency planning stage. It is in this
period that choices are made concerning how,
how much, and for how long, aid will be deliv-
ered. These choices often have repercussions
on the prospects for durable solutions that last
long after the emergency has ended.
Emergency Preparedness
26. The best way to ensure an effective
emergency response is by being prepared.
Emergency preparedness can be defined as:
planning and taking action to ensure
that the necessary resources will be
available, in time, to meet the foreseen
emergency needs and that the capacity
to use the resources will be in place.
27. The scope of emergency preparedness is
broad and the activities at that stage can be
undertaken at the global, regional and coun-
try levels.
The preparedness measures should enable
an organization to respond rapidly and
effectively to an emergency.
31
Stage Typical Activities
• Prevention;
• Early warning;
• Contingency planning;
• Development of emergency
response systems;
• Generation of support among
potential host and donor
governments;
• Provision of stand-by resources;
• Pre-positioning of supplies;
• Training.
• Problem, needs and resources
assessments;
• Resource mobilization;
• Handling donor relations and
media interest;
• Operations planning;
• Implementation
and coordination;
• Monitoring and evaluation;
• Transition to the post
emergency operation.
Emergency
preparedness
Emergency
response

28. At the global level, UNHCR maintains
centrally a range of stand-by emergency re-
sponse resources. These resources have been
developed on the basis of past experience in
emergencies. They include staff support,
human and financial resources, operational
support items and services, and a centrally
managed emergency stockpile. The resources
are available for deployment at short notice
to any area where the need arises. They
ensure a minimum and predictable level of
global preparedness for emergencies. More-
over, there are also training activities available
which can be used for capacity building.
29. For details of these resources, see the
Catalogue of Emergency Response Resources,
Appendix 1.
30. Contingency planning reduces the lead
time necessary to mount an effective response
and is a crucial tool to enhance the capacity to
respond.
31. The contingency planning process (see
chapter 4) will allow the identification, in ad-
vance, of gaps in resources. A realistic plan
may encourage donors and others to provide
the missing resources.
32. Contingency planning helps predict the
characteristics of the impending emergency – it
increases the institutional analytical capacity
which can be drawn upon should an emer-
gency occur. It also helps identify the additional
preparedness activities which may be required.
These may include development or restructur-
ing of the UNHCR organization in the country,
emergency staffing, stockpiling, pre-position-
ing supplies and training. Priority should be
given to activities requiring longer lead times.
Emergency Indicators
33. An emergency may start with a sudden
large influx of refugees, with several thousand
persons crossing a border, causing a highly
visible life threatening situation. More often
however, the onset of an emergency is not so
dramatic or obvious, and a situation requiring
an extraordinary response and exceptional
measures may develop over a period of time.
It is therefore essential to be able to recognize
if a situation exists (or is imminent) which re-
quires an emergency response, and what are
the likely key characteristics (see table 1).
34. The following indicators are measurable
and are therefore commonly used as thresh-
olds above (or below) which an emergency
situation clearly exists, or to signal whether a
situation is under control and whether there is
a need for urgent remedial action. The most
important of these indicators is the mortality
(or death) rate (see chapter 14 on health for
information on how to calculate the mortality
rate. More details of the other indicators are
given in the respective chapters and in Appen-
dix 2 Toolbox).
35. Other indicators may not be so easily
quantifiable but may be just as critical, for ex-
ample, the presence of a physical threat to the
refugees or to the standards of human rights
which they enjoy. In particular, threats of re-
foulement should be considered as an indica-
tor of a need for an emergency response.
Emergency Response
36. Emergency response can be defined as:
immediate and appropriate action to
save lives, ensure protection, and restore
the well-being of refugees.
37. Once safe asylum is assured, the priority
of emergency management will be life saving
activities. Timely and rapid problem, needs
and resources assessments will help confirm or
identify areas where gaps still exist from the
contingency planning stage, both in terms of
expertise and resources required.
38. Identification of problems requiring-
specialist expertise is essential. Most refugee
emergencies will require, in addition to protec-
tion specialists, one or more technical experts
to coordinate the crucial technical sectors, such
as health, food, nutrition, sanitation, water,
shelter and infrastructure.
At the country and regional levels, early
warning and contingency planning are the
key preparedness measures.
32
Indicator Emergency Levels
MORTALITY RATE > 2 per 10,000 per day
Nutritional > 10% with less than 80%
Status of children weight for height
Food < 2,100 calories/person/day
Water Quantity < 10 litres per person per day
Water Quality > 25% of people with
diarrhoea
Site Space < 30 sq. meters per person
(this figure does not include
any garden space)
Shelter space < 3.5 sq. meters per person
Table 1 – Emergency Indicators

Key References
A Framework for People-Oriented Planning in
Refugee Situations Taking Account of Women,
Men and Children, UNHCR, Geneva, 1992.
Contingency Planning – A Practical Guide for Field
Staff, UNHCR, Geneva, 1996.
Coordination Among International Organizations
in Complex Emergencies, Disaster Management
Training Programme, UN, 1997.
Initial Assessment in Emergency Situations – A
Practical Guide for Field Staff, UNHCR, Geneva,
1998.
Supplies and Food Aid Field Handbook, UNHCR
Geneva, 1989.
UNHCR Handbook; People-Oriented Planning at
Work: Using POP to Improve UNHCR Program-
ming, UNHCR, Geneva, 1994.
UNHCR Manual, Chapter 4, UNHCR, Geneva, 1995
(and updates).
Partnership: A Programme Management Hand-
book for UNHCR’s Partners, UNHCR, Geneva,
1996.
33

When to Plan
Early Warning
Planning as a Process 10-17 36-37
Meetings
Contingency Planning Tasks 18-22 37-38
Scenario Identification
Policy and Strategic Objectives
Sector Objectives and Activities
Characteristics of a Good Plan 23-27 38
Key References
Figures
Figure 1: Differences between Contingency Planning and Operations Planning 37
Annexes
Annex 1: A Model Structure for a Contingency Plan 39
ContingencyPlanning4
35

Introduction
1. Contingency planning can be defined as:
A forward planning process, in a state of
uncertainty, in which scenarios and objec-
tives are agreed, managerial and technical
actions defined, and potential response
systems put in place in order to prevent,
or better respond to, an emergency.
2.
The planning process involves a group of peo-
ple or organizations working together on an
ongoing basis to identify shared objectives and
define respective responsibilities and actions.
3. Contingency planning is a pre-requisite
for rapid and effective emergency response.
Without prior contingency planning much
time will be lost in the first days of an emer-
gency. Contingency planning builds organiza-
tional capacity and should become a founda-
tion for operations planning and emergency
response.
When to Plan
4. In most cases field workers will know
simply from experience and good knowledge
of the current situation when it is prudent to
plan.
5. There is no rule as to when to start
contingency planning – except that, when in
doubt, develop a contingency plan.
Early Warning
6. Early warning signs of a potential critical
event should trigger a contingency planning
process. Early warning is the collection, analysis
and use of information in order to better un-
derstand the current situation as well as likely
future events. The particular focus is on events
which might lead to population displacement.
Early warning can come from a wide range of
sources: governments, local population, politi-
cal leaders, media, academia, refugees, inter-
national and national organizations.
7. The collection and analysis of early warn-
ing information should be integrated into the
routine work of UNHCR offices. Regular moni-
toring and reporting, in a consistent format,
is an important means to ensure that trends
and patterns are recorded and that any
changes indicating population displacements
are spotted.
8.
9. The most common emergency threat for
UNHCR is a new influx or sudden increase in a
refugee population. However, contingency
planning should also take place in the midst of
an existing operation. For example, contin-
gency plans may be needed for a possible
renewed influx, a natural disaster affecting
a camp, an epidemic, an attack on a camp, vio-
lence in a camp, sudden spontaneous repatria-
tion, or a security threat to staff or premises.
In these situations the realities of the ongoing
operation are well known, but contingency
plans must be made for future developments
for which one needs to be prepared.
Planning as a Process
10. Planning is an ongoing activity; the plan-
ner needs to constantly assess the situation
and adjust objectives and courses of action to
take account of developments.
11. A static contingency plan is soon out of
date and breeds a false sense of security. By
reviewing and updating planning measures
regularly, the preparedness measures in place
can be kept appropriate and adequate.
12. One of the most important contributions
of the contingency plan to emergency response
often comes from the process itself: identify-
ing working partners, their capabilities and
resources, developing a working relationship
with them and coming to a common under-
standing of the issues, priorities and respon-
sibilities.
13. Both contingency planning and opera-
tions planning set strategic and sectoral objec-
tives and develop an action plan to achieve
these objectives. The major difference be-
tween the two is that contingency planning
involves making assumptions and developing
The capacity of the actors to respond in an
emergency will be enhanced by their previ-
ous involvement in the contingency plan-
ning process.
Where early warning information indicates
the threat of a refugee emergency, contin-
gency planning should be started automa-
tically.
It is better to plan when it is not needed
than not to have planned when it was
necessary.
It is important to consider contingency plan-
ning as a planning process from which a
contingency plan is drawn.
36

the scenarios upon which planning is based,
while in operations planning, the starting
point is known, and the planning will build on
needs and resources assessments.
Meetings
14. Many pitfalls in contingency planning
can be avoided by planning collectively, mar-
shalling the widest range of local skills, and
complementing these by external inputs.
A single meeting that produces a plan is usu-
ally insufficient and the product often inade-
quate. The contingency planning process
therefore revolves around regular meetings
and follow up.
15. The participants in the contingency plan-
ning process should include those who might
be involved in the emergency response, in-
cluding the government, agencies, representa-
tives of donor governments and local organi-
zations and expertise. Contingency planning
meetings are sometimes called “roundtable”
meetings to stress the importance of participa-
tion by all involved. The views of one agency
may differ from others, but this will often be
to the advantage of the planning process
since it provides a useful forum for all assump-
tions to be questioned and refined. The end
product is thus more realistic. While UNHCR
may facilitate the roundtable, the role and
importance of each participant must be re-
spected.
16. A contingency planning meeting should
produce a draft contingency plan containing
the following:
i. Scenario identification;
ii. Strategic objectives;
iii. Sector objectives and activities.
Subsequent meetings should review early
warning indicators, report on actions taken
since the previous meeting, and update the
existing plan.
17. Inputs into these meetings include spe-
cialist expertise and advice, results from field
visits, and statements of agency policy. Out-
puts include the contingency plan, draft
budgets and standby arrangements such as
stockpiles.
Contingency Planning Tasks
Scenario Identification
18. Based on early warning indicators and
their own experience, the participants in the
planning process should develop likely scenar-
ios. This activity is the most intuitive, yet one
of the most important, since it lays the basis
for all further planning. In establishing scenar-
ios assumptions must be made. While these
will be based on best available knowledge,
nothing can remove the element of unpre-
dictability.
19. The scenario is a kind of benchmark: if
the influx is smaller than envisaged, the safety
margin will be welcome, if it is larger, the im-
portance of taking urgent corrective action is
highlighted.
20. For scenario development:
i. Consider all possibilities (be imaginative);
ii. Settle for a limited number of options only
(1 or 2 options are the norm); otherwise the
planning process will be too complicated;
iii. Use the concept of either worst case sce-
nario or most likely scenario.
Policy and Strategic Objectives
21. Planners need to have some vision of the
direction of the overall operation. To the ex-
tent possible this should be a shared vision. It
Contingency planning is best achieved
through a cooperative and coordinated ef-
fort wherein all concerned work together
with shared objectives over a period of
time. ContingencyPlanning4
37
Aspect
Relation to
emergency
event
Scope of plan
Partners
involved
Focus
Relationships
Planning Style
Allocation
Time frame
Contingency
plan
Before
Global or
scenario based
All likely
partners
Developing
agreed
scenarios
Developing
Consultative
Roles
Floating,
uncertain
Operations
Plan
During
Both strategic
and specific
Operational
and imple-
menting
partners only
Effective and
rapid response
Utilizing
Directive and
consultative
Responsibilities
Fixed,
immediate
Figure 1 – Differences between Contingency
Planning and Emergency Operations Planning

is not unusual for the various partners to hold
different policy approaches to a particular
problem. If these cannot be reconciled, at
least the differences should be known and
understood by all parties. However, an effort
should be made to agree on some overall
principles, through establishing overall objec-
tives for the emergency response. All activities
undertaken in the plan will need to be consis-
tent with these overall objectives.
Sector Objectives and Activities
22. This is the most detailed part of the plan-
ning process. For each sector planners should
agree, in as much detail as time will permit,
on:
i. Sector objectives, including standards;
ii. The main tasks;
iii. Who is responsible for implementing which
task;
iv. Time frame for implementation.
Characteristics of a Good Plan
23. A good plan (whether operations or con-
tingency) should be comprehensive yet not
too detailed; it should find the right balance
between covering all the important issues yet
not flooding the plan with detail.
24. It should be well structured, easy to read
and, importantly, easy to update. Much of the
plan will be action oriented, so it should have
a layout that clearly shows what needs to be
done, by whom and by when.
25. It should be a living document and be
constantly updated, amended and improved.
It is not a document which is comprehensively
revised on a schedule, but is one that is con-
stantly in a state of change.
26. A contingency plan should also achieve a
balance between flexibility (so it can apply to
a variety of scenarios) and specificity (for key
practical inputs - e.g. well positioned stock-
piles). The plan must not be too directive, and
yet must provide adequate guidance. It should
not be expected to act as a blueprint.
27. See Annex 1 for the structure of a typical
contingency plan.
Key References
Contingency Planning – A Practical Guide for Field
Staff, UNHCR, Geneva, 1996.
A short document with a clear structure will
facilitate updating.
38

The following is a proposed structure for a Contingency Plan. It is based on a refugee influx.
Adaptation will be required for different scenarios.
Chapter 1: General Situation and Scenarios
i. Background and country information
ii. Entry points
iii. Total planning figure
iv. Arrival rate
v. Reception and anticipated in-country movement
vi. Settlement arrangements
vii. Expected refugee demographic profile
viii. Emergency response trigger
Chapter 2: Policies and Overall Operation Objectives
i. Overall policy (strategic) objectives of the programme
ii. Comments on policy stance of various partners
Chapter 3: Objectives and Activities by Sector
i. Management and overall coordination; allocation of responsibilities
ii. Protection, reception, registration, security
iii. Community services
iv. Logistics and transport
v. Infrastructure and site planning
vi. Shelter
vii. Domestic needs and household support
viii. Water
ix. Environmental sanitation
x. Health and nutrition
xi. Food
xii. Education
xiii. Economic activities
xiv. Support to the operation, administration, communications, staff support and safety
Each section should include a consideration of sector objectives and outputs, needs, resources,
activities, and financial requirements, existing and proposed preparedness measures, implementa-
tion responsibilities and timing.
Chapter 4: Procedures for feedback, updating and future action
Describe how the Plan will be updated and revised, who will be responsible for ensuring this, and
how the information will be disseminated.
Possible Annexes
i. Maps
ii. Registration forms
iii. List of organizations or individuals participating in the planning process
iv. Agency Profiles (details of staff, resources, future intentions)
v. Gap identification charts (see chapter 6 on operations planning)
vi. Commodity specifications
vii. Draft budgets.
ContingencyPlanning4
39
Annex 1 – A Model Structure for a Contingency Plan

5
Initial Assessment, Immediate Response
40

InitialAssessment,
ImmediateResponse
5
41
Introduction 1- 8 42-43
Organizing the Assessment 9- 16 43
Immediate Response 17-22 43-44
Ensure the Capacity to Act
Protection
Organizational Considerations
Protection and Material Assistance 23-28 44-45
The Location of the Refugees
Control at the Sites
Numbers and Registration
Urgent Survival Needs
Key References 45
Annexes
Annex 1: Checklist for Initial Assessment 46-47

Introduction
1. Emergency assistance must be based on
a sound, though rapid, assessment of the
refugees' most immediate problems and
needs and the resources available to meet
those needs.
2. The objective of the initial problem
analysis and needs assessment is to provide
UNHCR with a clear and concise picture of the
emergency situation, in both quantitative and
qualitative terms. It should provide enough
information to predict the evolution of the
emergency, at least in the short term. It is the
basis for decisions which affect the future of
the operation.
3.
The initial and subsequent assessments are
intricately linked with, and will form the basis
for, operations planning. The initial assess-
ment will also build on the contingency plan-
ning process.
4. The initial assessment should:
❏ Answer the questions “what is the main
problem?” and ”is there an emergency or
not?”;
❏ Provide sufficient information to decide
whether UNHCR should be involved in the
emergency response and what the scope of
that involvement should be;
❏ Be an inter-agency initiative, but with one
body providing the overall coordination.
The team should include staff from UNHCR,
the government and other potential part-
ners (for example other UN agencies,
NGOs). Ideally the inter-agency body used
for contingency planning should provide
the basis for the group carrying out a sim-
ple problem and needs assessment. Often
the people carrying out the initial assess-
ment will simultaneously be providing the
initial response. Whenever possible, the as-
sessment team should include those who
will implement the emergency operation in
the field;
❏ Be carried out quickly;
❏ Provide a full picture of the scope of the
emergency, rather than focus on a limited
area or sector (it is better to get the whole
picture half right);
❏ Describe the people affected by the emer-
gency (a simple demographic profile);
❏ Identify the coping ability of the refugees
themselves;
❏ Identify locally available resources;
❏ Identify what are the most immediate pri-
orities;
❏ Use agreed and appropriate standards
against which needs can be measured;
❏ Involve the refugees, women and men,
from the outset. Get to know them and
understand their concerns. They are a key
source of information;
❏ Record the sources of information collected;
❏ Cross-check information, not relying on
only one tool (e.g. aerial surveys cross-
checked by on the ground observations and
interviews);
❏ Involve appropriate technical input;
❏ Use samples and surveys rather than collect
too much detailed information which is
difficult to analyze;
❏ Produce recommendations for immediate
action indicating the resources needed to
implement them;
❏ Be able to trigger an immediate and effec-
tive response;
❏ Have the results shared promptly and
widely.
5. The assessment should, as a minimum, an-
swer the questions in the checklist in Annex 1.
This includes essential minimum information
required for planning an emergency opera-
tion.
6. The initial assessment should focus on
the priority life threatening problems which
are usually in the sectors of protection, water,
food, sanitation, shelter and health. The as-
sessment should measure the actual condition
of the refugees against what is needed for
their survival and immediate well-being (ex-
pressed as “standards”). The resources at their
disposal should also be assessed.
7. Standards provide a benchmark against
which the condition of the refugees can be
measured (see Appendix 2 for some of the
minimum survival standards). The standards
The setting of standards appropriate for the
situation is an important prerequisite for
needs assessment.
More detailed assessments will follow as
the emergency develops and needs evolve:
assessment never stops.
42

established for emergency assistance must be
consistent with the aim of ensuring the sur-
vival and basic well-being of the refugees, be
fairly applied for all refugees and be respected
by all involved.
8. The document Initial Assessment in
Emergency Situations: a Practical Guide for
Field Staff (see references) includes more de-
tailed checklists for assessments, and contains
practical information on principles, planning,
techniques, methods, and forms. See also
chapter 6 on operations planning for an ex-
ample of a Gap Identification Chart, a useful
tool for comparing needs and resources.
Organizing the Assessment
9. The initial assessment must be carried out
on the spot as soon as it is clear that a refugee
emergency may exist. The assessment must in-
volve the government and other key actors.
10. Immediate access to the area where
the refugees are located is, of course, a pre-
requisite. Getting the assessment underway as
soon as possible requires quick, practical steps:
establish a presence at or near the refugee site
for first hand information, interview refugees,
use other available sources of information,
mobilize local expertise and resources.
11. While an organized approach is neces-
sary, time must not be lost simply because the
desired expertise is not immediately available.
Where UNHCR is already present, initial action
must not be delayed pending the arrival of
staff with more expertise.
12. Planning the assessment involves setting
the objectives, establishing the terms of refer-
ence and selecting team members. The assess-
ment plan should indicate which information
should be collected and the report should
make clear if it was not possible to collect that
information.
13. If UNHCR is not already present in the
country, the assessment mission will normally
be organized by Headquarters.
14. Any problem and needs assessment
should start with a review of the existing
background information (mission reports,
media articles, situation reports, local maps).
Ideally, a contingency plan would have been
prepared and kept updated and would pro-
vide input for the assessment and the immedi-
ate response. UNHCR Headquarters can pro-
vide maps and geographical information from
a computerized database. The maps and infor-
mation can be tailored to the specific require-
ments of the assessment. The assessment
should also include interviews with the
refugees and others involved.
15. Tools commonly used in assessments are:
i. Questionnaires;
ii. Checklists;
iii. Visual Inspection.
16. A combination of tools is normally used
in order to cross-check the conclusions. Ques-
tionnaires and checklists (see Annex 1 for a
basic checklist) are particularly useful because
they standardize the approach and force the
assessors to plan ahead and decide which in-
formation needs to be collected. Visual inspec-
tions provide general information and can put
into context data from more systematic assess-
ments.
Immediate Response
17. Gathering information about problems,
needs and resources on the one hand, and the
establishment of standards on the other, will
allow the immediate unmet needs to be de-
termined.
18. In order to ensure urgent survival needs
are met, the most important initial actions are
likely to be:
i. Ensuring the capacity to act;
ii. Protection;
iii. Organizational considerations.
Ensure the Capacity to Act
19. The first priority is to provide the organi-
zational capacity required to meet the needs
of the emergency.
It may be necessary to invoke emergency pro-
cedures for the allocation of funds, implement-
ing arrangements, food supply, local purchase,
and recruitment of personnel. See Appendix 1
Enough UNHCR and implementing partner
staff of the right calibre and experience
must be deployed.
The most urgent actions must be taken
with whatever local material and organiza-
tional resources are available, even if the in-
formation at hand is incomplete.
A quick response to obviously urgent needs
must never be delayed because a compre-
hensive assessment has not yet been com-
pleted.
InitialAssessment,
ImmediateResponse
5
43

for details of how to access UNHCR emergency
response resources. With the government, the
resources of other UN organizations, particu-
larly UNICEF and WFP, and of the NGO sector
must be mobilized within the framework of a
plan for immediate action.
Protection
20.
Action must be taken to this end, and to en-
sure their security and fundamental human
rights. The importance of a UNHCR presence
where the refugees are located has been
stressed. Specific measures may be needed, for
example to meet the special protection prob-
lems and needs of groups at risk (unaccompa-
nied children, single young girls, minorities,
etc.), and to protect the refugees against arbi-
trary actions of outsiders and against groups
within their own number who may pose a
threat to their safety.
Organizational Considerations
21. UNHCR must establish a presence where
the refugees are, with assured communica-
tions with the main office and with Headquar-
ters. The organization of the necessary logis-
tical capacity to deliver the assistance will be
of critical importance.
22. The priority, once problems and needs
have been assessed, will be to provide vital
assistance wherever the refugees are located.
There will also, however, be key organizational
or planning decisions to take, some of which
may determine the future shape of the whole
operation. These often include the points sum-
marized below; decisions on them should be
seen as a part of the immediate response.
Protection and Material Assistance
The Location of the Refugees
23. This will have a major influence on protec-
tion and all sectors of assistance. If the refugees
have spontaneously settled in a scattered man-
ner, they should not be brought together
unless there are compelling reasons for break-
ing their present settlement pattern. If they are
already in sites which are judged to be unsatis-
factory, move them. The difficulty in moving
refugees from an unsuitable site increases
markedly with time. Even if those already there
cannot be moved, divert new arrivals elsewhere
(see chapter 12 on site planning).
Control at the Sites
24. Determine the optimum population in
advance and plan for new sites accordingly.
Keep careful control of actual occupation of
the site as refugees arrive, so that sections
prepared in advance are filled in an orderly
manner.
Numbers and Registration
25. An accurate estimate of numbers is a pre-
requisite for effective protection and assistance.
Efficient delivery of help to all in need will
require at least family registration which should
be organized as soon as possible. Nevertheless
the initial provision of assistance may have to
be based on a population estimation rather
than full registration (see chapters 11 and 13 on
registration and commodity distribution).
Urgent Survival Needs
26. Meet the most urgent survival needs:
food, water, emergency shelter, health care
and sanitation, ensuring fair distribution:
i. Involve the refugees and promote their
self-reliance from the start. If this is not
done the effectiveness of the emergency
assistance will be severely reduced, and an
early opportunity to help the refugees to
start to recover from the psychological
effects of their ordeal may be missed;
ii. Food. Ensure that at least the minimum
need for energy is met; a full ration can
follow. Set up special feeding programmes
if there are clear indications of malnutri-
tion. Establish storage facilities;
iii. Water. Protect existing water sources from
pollution and establish maximum storage
capacity with the simplest available means.
Transport water to the site if the need
cannot otherwise be met;
iv. Emergency shelter. Meet the need for roof-
ing and other materials from local sources
if possible. Request outside supplies (e.g.
plastic sheeting) if necessary;
v. Health care. Provide the necessary organi-
zational assistance, health personnel and
basic drugs and equipment in close consul-
tation with the national health authorities.
If such decisions go by default or are wrong
they will be very difficult to correct later.
Unless the refugees’ right to asylum is
assured there can be no assistance pro-
gramme.
44

InitialAssessment,
ImmediateResponse
5
45
Although the immediate need and de-
mand may be for curative care, do not
neglect preventive and particularly envi-
ronmental health measures;
vi. Sanitation. Isolate human excreta from
sources of water and accommodation.
27. Take steps to meet the social needs and
reunite families if necessary. Surveys may be
necessary to identify those in need, who
often do not come forward. Tracing may
be required. If groups of refugees have been
separeted, they should be reunited. Special
measures to ensure the care of any unaccom-
panied children will be a priority.
28. Once these and other priority measures
are underway, begin the wider planning
process.
Key References
Initial Assessment in Emergency Situations – a
Practical Guide for Field Staff, UNHCR, Geneva,
1998.

46
This checklist is based on a refugee influx, it should be modified in the light of the actual
nature of the emergency.
Who are the refugees, their numbers, and pattern of arrival
❏ Approximately how many refugees are there?
❏ Where have the refugees come from? Why?
❏ What is the rate of arrival? Is it likely to increase or decrease?
❏ What is the total number likely to arrive?
❏ What is the location of the arrival points and of the sites where people are settling (latitude and
longitude)?
❏ Are the refugees arriving as individuals or in groups? Are these family groups, clans, tribal,
ethnic or village groups?
❏ Are families, village groups and communities intact?
❏ How are the refugees organized? Are there group or community leaders?
❏ How are the refugees travelling – on foot, in vehicles?
❏ What is the gender ratio of the population?
❏ What is the age profile of the population? Can a breakdown in age be given – under five’s,
age 5 to 17 years, 18 years and over?
❏ How many unaccompanied minors are there? What is their condition?
❏ What was the social and economic situation of the refugees prior to their flight?
What are their skills and languages? What is their ethnic and cultural background?
❏ Are there individuals or groups with special social problems? Are there particular groups made more
vulnerable by the situation? (e.g. the disabled, separated minors or elderly people in need of support).
❏ What are the basic diet, shelter, and sanitation practices of the refugees?
❏ What is the security situation within the population – is there a need for separation between
different groups, are there armed groups within the population?
❏ What is the formal legal status of the refugees?
Characteristics of the location
❏ What are the physical characteristics of the area where the refugees are located?
❏ What is the soil, topography and drainage?
❏ Is there enough space for those there and those likely to arrive?
❏ Is there all season accessibility?
❏ Can the refugees access relief assistance from where they are located?
❏ What is the vegetation cover?
❏ Will the refugees need to use wood for fuel and shelter?
❏ Approximately how many people already live in the local area?
❏ Who owns (or has usage rights on) the land?
❏ Is there grazing land and are there potential areas for cultivation?
Annex 1 – Checklist for Initial Assessment

InitialAssessment,
ImmediateResponse
5
47
❏ What is the actual or likely impact on the local population and what is their attitude and that
of the local authorities towards the refugees?
❏ Are there security problems?
❏ What environmental factors must be taken into account (e.g. fragility of the local environment and
extent to which local community relies on it; how rapidly might it be degraded by the refugees,
proximity to protected areas)?
❏ What is the condition of the local population? If assistance is provided to the refugees, should the
local population also be assisted?
Health status and basic problems
❏ Are there significant numbers of sick or injured persons, is there excess mortality?
❏ Are there signs of malnutrition?
❏ Do the refugees have access to sufficient quantities of safe water?
❏ Do the refugees have food stocks, for how long will they last?
❏ Do the refugees have adequate shelter?
❏ Are adequate sanitary facilities available?
❏ Do the refugees have basic domestic items?
❏ Is there sufficient fuel for cooking and heating?
Resources, spontaneous arrangements and assistance being delivered
❏ What type and quantity of possessions have the refugees brought with them?
❏ What arrangements have the refugees already made to meet their most immediate needs?
❏ What assistance is already being provided by the local population, the government, UN organizations
and other organizations, is the assistance adequate, sustainable?
❏ Is the present assistance likely to increase, continue, decrease?
❏ What is the government's policy on assistance to the refugees?
❏ Are there any major constraints likely to affect an assistance operation?
❏ Has contingency planning for this type of emergency been undertaken?
❏ What coordination arrangements are required?
Means to Deliver Protection and Assistance
❏ Can effective implementing arrangements be made quickly and locally, if not, what are the alternatives?
❏ Is there already an identified refugee leadership with whom it will be possible to coordinate the
delivery of protection and assistance?
❏ What are the logistical needs and how can they be met?
❏ Where will the necessary supplies come from?
❏ How will they reach the refugees?
❏ What storage is needed, where and how?
❏ Are there essential items which can only be obtained outside the region and whose early supply will
be of critical importance (e.g. food, trucks?)
❏ What are the needs for UNHCR and implementing partner staff and staff support?

Operations Planning tasks 9 50-51
Allocation of responsibilities 10-14 51-52
Gap Identification Chart
Roles and Tasks
Figures
Figure 1: Example of a Gap Identification Chart 10 52
Annexes
Annex 1: A Model Structure for an Operations Plan 53
Annex 2: Gap Identification Chart (blank) 54
OperationsPlanning6
49

Introduction
1. An emergency response requires good
planning. An important aspect of planning,
particularly in an emergency situation, is
the development of an operations plan. The
“Operations Plan” is a vital management tool
which should be based on a problems, needs
and resources assessment. The plan should
determine programme priorities, set objec-
tives, and specify actions that need to be
taken by the actors responsible for the various
sectors of an operation. Specific tasks in an
emergency and the parties responsible for the
implementation of these tasks need to be
clearly identified and a plan formulated in as
clear and concrete a way as possible.
2. The more critical the situation, the more
important it is for the operations manager to
find the time to take stock, determine priori-
ties and develop a plan for what needs to be
done, when, by whom and how.
3. Ideally, the operations plan should make
use of the contingency planning process, part-
ners identified, and resources prepared, as well
as the plan itself. As the same principles of
planning apply, the structure of the operations
plan can be based on the contingency plan
(also attached here as Annex 1). There are a
range of additional considerations beyond what
is included in the Contingency planning format,
many of which will be addressed over time.
However, the main differences between contin-
gency planning and operations planning and
the characteristics of a good plan are discussed
in chapter 4 on contingency planning. The tasks
and approach will be different primarily be-
cause of assessments – in operations planning,
the starting point is known and assessments of
the situation replace the contingency planning
scenarios and many of the assumptions.
4. The views of the refugees should be
taken into account in drawing up the opera-
tions plan. They are the single most important
resource in meeting their own needs, and will
have definite ideas on how this may best be
done. The plan must strengthen the refugees'
own resources and self-reliance and avoid
creating dependency. The plan should also re-
flect the aim of a durable solution.
5. The operations plan must be compre-
hensive, identifying all problems, needs and
resources whether these are met through
UNHCR or by other organizations and sources
of funds. Drawing up the operations plan
should be a team effort. Clear direction must,
however, come from the government and/or
UNHCR.
6. Although the plan should be compre-
hensive, this should be balanced by the need
to produce the plan quickly, so that in rapidly
evolving emergencies the plan will not be-
come outdated before it is finished. In addi-
tion, lengthy plans can be difficult to update.
Characteristics of a good plan are discussed in
paragraphs 23 to 25 of chapter 4 on contin-
gency planning.
7.
A plan, as a document, is not an end in itself
but simply a record of the process. It should be
kept updated in light of the evolving situa-
tion: implementation of the plan should be
monitored and corrective action taken, and
the plan should then be adjusted and revised.
The operations plan must be made available
to all who need it.
8. This chapter focuses on operations plans
developed with partners. However, planning
within the office should not be neglected –
simple plans of action at each administrative
or office level within UNHCR should also be
drawn up, from site to Headquarters, tying in
with the overall operations plan and involving
the same principles: clarifying objectives, allo-
cating responsibilities, defining activities to
achieve objectives, and defining coordination
mechanisms such as staff meetings (discussed
in chapter 20 on administration and staffing).
Operations Planning Tasks
9. Operations planning involves the tasks
set out below:
i. Review existing plans and information in
the contingency plan;
ii. Assess problems, needs and resources: iden-
tify critical unmet needs.
It should be stressed that, as with contin-
gency planning, operations planning is a
process.
The most effective operations plans are
those developed by or with the people who
will implement them.
At the start of an emergency there is a ten-
dency to postpone planning, both because
information is not available and because
there are obvious urgent needs which can
be met piecemeal, without a plan. This ten-
dency should be resisted.
50

The problems, needs and resources assess-
ments determine what must be done, and
where the priorities are. Assessment of prob-
lems, needs and resources is part of planning:
plans must be updated to take account of new
assessments and progress in implementation.
Identify critical unmet needs using the results
of the assessments and comparing these with
established standards – the determination
of the standards to which assistance should
be delivered is of fundamental importance.
The resources which are available and those
which are required must also be identified.
Resources includes human resources and per-
sonnel, local and international implementing
and operational partner organizations, and
material resources.
iii. Set overall goals
The overall operation and strategic goals must
be clarified. All other objectives and activities
should be consistent with these overall objec-
tives. In formulating objectives, the single
most important question to ask is, “What is
the intended result?” Objectives should be
specific, measurable, achievable and realistic,
and the time frame within which they should
be reached should be specified.
iv. Clarify planning assumptions
It will also be necessary to clarify the main
constraints, planning assumptions and princi-
ples behind the emergency operation. These
should be set out explicitly, including an
explanation of the role, responsibilities and
policies of the government, UNHCR, other
UN organizations and operational partners.
In addition, standard or established proce-
dures, such as monitoring and coordination
mechanisms, MOUs etc. should also be set
out. Similarly, standards in various sectors
and any specific guidelines necessary should
be specified (where the plan includes objec-
tives, outputs and activities on a sector by
sector basis). Although these issues should
have been in the contingency plan, they will
need to be revisited in the light of the prob-
lem and needs assessments, and restated as
necessary to new partners, so everyone is
working with the same assumptions and to
the same standards.
v. Determine the courses of action to reach
overall objectives (implementing arrange-
ments)
Consider various options to reach objectives,
their advantages and disadvantages; which
are flexible, which are the most efficient and
effective? Choosing an option for implement-
ing arrangements which retains flexibility is
important in a rapidly changing situation.
Chapter 8 on implementing arrangements dis-
cusses this in more detail.
vi. Determine objectives and courses of action
to reach objectives at sector level.
Decide on the objectives, activities and out-
puts for each sector. As with contingency plan-
ning, this is the most detailed part of the plan.
The organization with operational responsi-
bility for a particular sector or site should draw
up the plan of action for that sector or site.
vii. Allocate responsibilities
Responsibilities (both within UNHCR and be-
tween different actors in the operation), need
to be clearly stated.
viii. Determine coordination mechanisms
Coordination mechanisms should be estab-
lished between the different actors in the op-
eration. Coordination at different geographi-
cal levels (e.g. at the site and in the capital or
regional city) needs also to be assured. In a
large operation, it may be necessary to have
separate coordination mechanisms for sectors.
ix. Determine monitoring mechanisms
From the start, the management of a refugee
emergency must include continuous monitor-
ing (by measuring the indicators of perform-
ance), reporting and evaluation in order to
ensure that the objectives remain appropriate
as circumstances change, and the activities
to fulfill the objectives are being carried out
effectively.
x. Record and disseminate the plan, monitor
progress, take corrective action, and adjust
and revise the plan.
Effective Planning Guidelines for UNHCR
Teams (updated in January 1999) provide
more details on managing the planning
process at all levels of an operation in the
most effective and efficient way possible. The
assumption underlying this emphasis on the
planning process is that better planning
processes lead to better quality results deliv-
ered on time in a cost effective manner.
At the early stages of a major emergency, it
is unlikely that resources will be sufficient
to meet all needs, thus prioritization will be
an important part of operations planning.
OperationsPlanning6
51

Allocation of Responsibilities
Gap Identification Chart
10. A gap identification chart is a simple but
very important and useful tool to allocate re-
sponsibilities effectively and identify the criti-
cal unmet needs of the refugees site by site
and sector by sector. It illustrates who is re-
sponsible for what in an operation (by site and
sector) and points out gaps where a sector or
site needs attention. An example is shown be-
low – the blanks indicate “gaps” i.e. sites or
sectors for which nobody has responsibility.
These would need to be given priority atten-
tion. Annex 2 shows a blank chart Figure 1
shows an example that has been filled in.
Roles and Tasks
11. The roles and tasks of all involved must
be clearly stated. Delay in defining responsibil-
ity usually leads to each party defining goals
independently and setting their own limits of
responsibility. This in turn can lead quickly to
confusion, gaps and duplication. Responsibili-
ties should be defined for each administrative
level, and for both organizations and individu-
als. How responsibilities are allocated to indi-
viduals is discussed in chapter 20 on adminis-
tration and staffing.
12. Responsibilities are allocated to different
organizations in a refugee emergency prima-
rily through organizations’ mandates, interna-
tional instruments and pre-existing MOUs be-
tween organizations.
13. The responsibilities and roles are defined
in more detail in response to the specific
needs of the refugee situation and capacities
of the different parties on the ground. These
are set out in implementing agreements with
implementing partners, MOUs and exchange
of letters with other UN agencies, and agree-
ments with the government. If formal agree-
ments have not yet been drawn up and the
basis of cooperation remains a Letter of
Intent, the definition of responsibilities con-
tained in the operations plan is more essential
than ever (see Annex 1 of the chapter 8 im-
plementing arrangements for a format of a
Letter of Intent).
14. The responsibilities of organizations de-
livering assistance but which are not imple-
menting partners of UNHCR must also be de-
fined. This may create problems, particularly
where individual NGOs wish to have responsi-
bility for a specific sector. Final authority rests
with the government, and the Representative
or the operations manager should consult
closely with the authorities. To the extent pos-
sible, however, any conflict of interest should
be resolved within the framework of a coordi-
nating mechanism.
52
Figure 1 – an example of a Gap Identification
Chart
Site 1 Site 2 Site 3
Overall site
Agency M Agency M Agency R
management
Protection UNHCR UNHCR UNHCR
Food
Agency B Agency K
distribution
Shelter Agency B Agency Y -
Water Agency W Agency W
Health Agency H Agency H
Etc.

The following is a proposed structure for an operations plan. It is based on a refugee influx. Adapta-
tion will naturally be required for different situations.
Chapter 1: General Situation
i. Background and country information;
ii. Entry points;
iii. Agreed planning figures;
iv. Arrival rate;
v. Reception and in-country movement;
vi. Settlement arrangements;
vii. Demographic profile of the refugees;
Chapter 2: Policies and Overall Operation Objectives
i. Overall policy (strategic) objectives of the programme;
ii. Comments on policy stance of various partners;
Chapter 3: Objectives and Activities by Sector
i. Management and overall coordination; allocation of responsibilities;
ii. Protection, reception, registration, security;
iii. Food;
iv. Logistics and transport;
v. Infrastructure and site planning;
vi. Shelter;
vii. Domestic needs and household support;
viii. Water;
ix. Environmental sanitation;
x. Health and nutrition;
xi. Community services;
xii. Education;
xiii. Economic activities;
xiv. Support to the operation, administration, communications, staff support and safety;
Each section should include overall sector objectives, and site by site objectives and outputs, problems,
needs, resources, financial requirements, activities, implementation responsibilities and timing.
Chapter 4: Procedures for updating the operations plan
Describe how the Plan will be updated, who will be responsible for ensuring this and how the infor-
mation will be disseminated.
Possible Annexes
i. Maps
ii. Registration forms
iii. List of organizations or individuals participating in the operation
iv. Agency Profiles (details of staff and resources involved in the operation)
v. Gap identification charts
vi. Commodity specifications
vii. Budgets
OperationsPlanning6
53
Annex 1 – A Model Structure for an Operations Plan
Based on the problem, needs and resources assessments

Site 1 Site 2 Site 3
Overall site
management
Protection
Registration
Shelter
Water
Health
Nutrition
Sanitation
Distribution
Other
54
Annex 2 – Gap Identification Chart (blank)

7
Coordination and Site Level Organization
56

Coordination 1-25 58-60
Introduction
Coordination of the UN Response to Refugee Emergencies
Mechanisms for Coordination in Refugee Emergencies
Coordination of the UN Response to Complex Emergencies
Organization at the Site Level 26-38 60-62
Introduction
Community Organization
Community Involvement
Refugee Representation
Key References 62
Annexes
Annex 1: Elements of a Coordinating Body 63
Annex 2: Tips on Running a Meeting 64-65
Coordination
andSiteLevelOrganization
7
57

Coordination
Introduction
1. Coordination can be defined as the har-
monious and effective working together of
people and organizations towards a common
goal.
2. Good coordination should result in:
i. Maximum impact for a given level of re-
sources;
ii. Elimination of gaps and overlaps in services;
iii. Appropriate division of responsibilities;
iv. Uniform treatment and standards of protec-
tion and services for all the beneficiaries.
3. For effective coordination appropriate
approaches and structures will need to be
put in place at the various levels. Coordina-
tion requires good management and clearly
defined objectives, responsibilities and au-
thority.
Coordination of the UN Response to Refugee
Emergencies
4. Within the UN system the responsibility
for refugees lies with UNHCR. Therefore,
when there is a refugee emergency, UNHCR is
the UN organization responsible for coordi-
nating the response of the UN system to the
emergency.
Mechanisms for Coordination in Refugee
Emergencies
5. Effective coordination is the result of
sound management. Coordination mecha-
nisms set up without the establishment
of clear objectives and assignment of respon-
sibility and authority will be ineffective.
Coordination must be based on good infor-
mation exchange, particularly with the site
level, otherwise it may even be counter-
productive.
6. Mechanisms for coordination include:
i. International and Regional instruments and
agreements which define responsibilities
and roles at the global (and sometimes re-
gional or country) level;
ii. Memoranda of Understanding and ex-
change of letters with other agencies, and
agreements with implementing partners
and host governments, defining responsi-
bilities and roles at the situational level;
iii. A coordinating body;
iv. Sectoral committees as necessary;
v. Regular meetings;
vi. Reporting and information sharing;
vii. Joint services and facilities, for example,
vehicle repair services, communications,
and a joint staff security group;
viii.Codes of conduct for organizations work-
ing in humanitarian emergencies.
7. In refugee emergencies UNHCR should
take the lead to ensure effective coordination
if this is not already ensured, including estab-
lishing the coordinating body.
8.
The coordinating body will provide a frame-
work within which the implementation of the
programme can be coordinated and manage-
ment decisions taken. The coordinating body
should have clearly defined and well promul-
gated responsibility and authority.
9. The elements of a coordinating body,
including membership and functions are de-
scribed in Annex 1. Tips for running meetings,
including coordinating meetings are given in
Annex 2.
10. Where a coordinating structure does not
already exist, UNHCR should, in cooperation
with the government, take the lead in setting
up the coordinating body and mechanism.
This is a crucial component of UNHCR's leader-
ship role. The coordinating body may be set
up and chaired by the government with
strong support from UNHCR, or be co-chaired
by the government and UNHCR, or be chaired
by UNHCR alone.
11. The membership of the coordinating
body should include government ministries
and departments, as well as other UN agencies,
NGOs and other concerned organizations. It is
important to coordinate the activity of all
NGOs – whether they have entered into an im-
plementing agreement with UNHCR or not. In
a large scale emergency with a number of
actors, the coordinating body could become
unwieldy. However, it should still be possible to
Whatever the implementing arrangements,
a single coordinating body should be estab-
lished for the operation – for example, a
task force, commission, or operations centre.Coordination is not free: it has costs in
terms of time and other resources needed
to make it work.
58

ensure some degree of representation or par-
ticipation on the coordinating body by all ac-
tors either directly, or on sectoral committees,
or through close working partners who are
represented on the coordinating body.
12. The coordinating body should hold regu-
lar, formal meetings during which overall
progress is reviewed and plans adjusted. These
meetings should be complemented by infor-
mal contacts with members of the coordinat-
ing body.
13. When required, the coordinating body
should create sectoral committees, for exam-
ple for health and nutrition. Such committees
will be responsible for coordinating imple-
mentation in that sector and reporting back
to the coordinating body. They could also play
an important part in the development of spe-
cific standards for the delivery of assistance.
When the operation is sufficiently large, a
sectoral committee could be coordinated by a
UNHCR sector coordinator.
14. A coordinating body can also be of
considerable value when new agencies arrive,
both in integrating their assistance in the
overall programme and with practical admin-
istrative arrangements and briefing.
15. Coordination must be based on good in-
formation exchange, particularly with the site
level. The framework for the organization
and coordinating mechanisms at the site level
is likely to broadly reflect that established
centrally. To get information passed vertically
between central level and site level can be as
hard as getting information passed between
organizations. Each organization should be
responsible for ensuring that there is good
communication between its staff at site level
and centrally, and that important information
is then passed on to the coordination body.
Coordination of the UN Response
to Complex Emergencies
16. A complex emergency can be defined as:
a humanitarian crisis in a country, region
or society where there is a total or consid-
erable breakdown of authority resulting
from internal or external conflict, and
which requires an international response
that goes beyond the mandate or capacity
of any single agency and/or the ongoing
UN country programme.
17. Likely characteristics of complex emer-
gencies include:
i. A large number of civilian victims, popu-
lations who are besieged or displaced,
human suffering on a major scale;
ii. Substantial international assistance is
needed and the response goes beyond the
mandate or capacity of any one agency;
iii. Delivery of humanitarian assistance is im-
peded or prevented by parties to the
conflict;
iv. High security risks for relief workers provid-
ing humanitarian assistance;
v. Relief workers targeted by parties to the
conflict.
18. The Office for the Coordination of Hu-
manitarian Affairs (OCHA), is the UN body
charged with strengthening the coordination
of humanitarian assistance of the UN to
complex emergencies. OCHA has three main
functions in this field: coordination of huma-
nitarian response, policy development and
advocacy on humanitarian issues.
19. OCHA discharges its coordination func-
tion primarily throughout the Inter-Agency
Standing Committee (IASC) which is chaired
by the Emergency Relief Coordinator (ERC),
with the participation of humanitarian part-
ners1
. The IASC ensures interagency decision-
making in response to complex emergencies,
including needs assessments, consolidated
appeals, field coordination arrangements and
the development of humanitarian policies.
20. Where there is a complex emergency an
individual or agency is appointed to be re-
sponsible for the coordination of the UN
system response at field level – this individual
or agency is designated the “Humanitarian
Coordinator”.
21. The decision on who to appoint as Hu-
manitarian Coordinator is made by the Inter-
Agency Standing Committee (IASC).
22. The agency appointed as Humanitarian
Coordinator will depend on the nature of the
emergency, and comparative existing agency
capacity in the region.
23. There are four possible options which
are normally used for the coordination of UN
assistance in a complex emergency. These are:
Coordination
7
59
1
The full members of the IASC are OCHA (convenor), FAO,
IOM, UNDP, UNHCR, WFP, UNICEF, WHO, and there are a
number of standing invitees, including the Red Cross mo-
vement and NGOs.

i. Resident Coordinator
The Resident Coordinator is the leader of
the United Nations country team and is
normally the head of UNDP in a particular
country. In a complex emergency, the Resi-
dent Coordinator may also be designated
as the Humanitarian Coordinator.
ii. Lead Agency
One of the UN agencies may be selected
to coordinate and this is often the agency
which provides the majority of the assis-
tance;
iii. Humanitarian Coordinator
If the emergency is of considerable size a
Humanitarian Coordinator may be appoin-
ted distinct from the office of the Resident
Coordinator and lead agency. The Humani-
tarian Coordinator normally phases out
once the emergency reaches recovery
phase and any residual tasks are returned
to the Resident Coordinator;
iv. Regional Humanitarian Coordinator
If the emergency affects more than one
country a Humanitarian Coordinator hav-
ing regional responsibilities may be ap-
pointed.
Role of UNHCR and Other UN Agencies
in a Complex Emergency
24. In complex emergencies involving refu-
gees, UNHCR will be responsible for protec-
tion and assistance activities on behalf of the
refugees. UNHCR may also be appointed lead
agency, and therefore be responsible for the
coordination of the UN response.
25. Whether or not UNHCR is lead agency,
the UNHCR Representative remains directly re-
sponsible to the High Commissioner on all is-
sues related to the UNHCR country pro-
gramme as well as policy matters and issues
related to UNHCR’s mandate.
Organization at the Site Level
Introduction
26. The framework for the organization and
coordinating mechanisms at the site level are
likely to reflect broadly those established cen-
trally. However, there is one fundamental dif-
ference between the site and central levels: at
the site level the refugees themselves should
play a major role.
27. A clear understanding of the aims and
objectives of the emergency operation and
proper coordination are even more important
at the site level than centrally, for it is here
that failures and misunderstandings will di-
rectly affect the refugees.
Regular meetings of those concerned are es-
sential. There should be an overall coordinat-
ing mechanism chaired by the government
authority, UNHCR Field Officer, and/or an
operational partner, and this mechanism may
be complemented by sectoral committees.
28. Certain activities are interdependent or
have a common component and will need
particularly close coordination at site level. For
example, environmental sanitation measures
must be closely coordinated with health serv-
ices, and the home visiting component of
health care with feeding programmes and
community services.
29. A rapid changeover of outside personnel
can create major problems for site level coordi-
nation, though some specialists may obviously
be required for short periods. The importance
of continuity is proportional to the closeness
of contact with the refugees. Operational
partners at the site should have a standard
orientation and briefing procedure to ensure
continuity of action and policy despite
changes in personnel.
Community Organization
30. The importance of preserving and pro-
moting a sense of community is stressed in
chapters 10 and 12 on community services and
site planning. The approach to thinking about
and understanding site and community organ-
ization should be from the smallest unit – the
family – upwards, rather than imposed from
the largest unit downwards, which would be
unlikely to reflect natural or existing commu-
nity structures and concerns.
31. The basic planning unit for site organiza-
tion and management is likely therefore to be
the family, subject to traditional social pat-
terns, and distinctive features of the popula-
Of particular importance will be the adop-
tion of common standards when a number
of organizations are providing similar assis-
tance.
The organization of the refugee community
must support and enhance their own abili-
ties to provide for themselves.
The protection of refugees must remain the
sole prerogative of the High Commissioner.
60

tion (e.g. numbers of separated minors, ado-
lescent and women headed households).
Larger units for organizational and represen-
tational purposes will again follow the com-
munity structure. For example, the next level
up is likely to be community units of about
80 to 100 people, grouped according to living
arrangements, followed by groups of commu-
nities of about 1,000 people. Different settle-
ment services are decentralized to these dif-
ferent levels – e.g. water and latrines at
household level, and education and health
facilities at community and larger levels. The
physical layout of the site will have a major
influence on social organization.
Community Involvement
32. The refugees must be involved in plan-
ning measures to meet their needs and in
implementing those measures. The way the
community is organized can help ensure that
the refugees’ specific skills are made use of
and that the personnel for services at the site
will come from the refugees.
33. There are three levels to the involvement
of refugees. The first is in the overall planning
and organization, for example the determina-
tion of what is the best and culturally most
appropriate solution to a problem, given the
constraints of the situation. This level requires
that the refugees have a social organization
within their community that is properly repre-
sentative. As the previous social structures
may have been severely disrupted, this may
take time to redevelop but will be important
to the success of the emergency operation and
for the future of the refugees. Meanwhile, ur-
gent action to meet evident needs must of
course be taken.
34. The second level of involvement is in the
practical use of the refugees' skills and re-
sources wherever possible for the implemen-
tation of the operation. The refugees them-
selves should run their own community to the
extent possible. Where suitably qualified or
experienced refugees exist, such as nurses,
teachers and traditional health workers, they
must obviously be used. Where they do not,
outside assistance should ensure that refugees
are trained to take over from those who
are temporarily filling the gap. Other services
include feeding programmes, sanitation, (main-
tenance and cleaning of latrines, drainage,
garbage disposal, vector control, etc.) con-
struction (shelters and communal buildings)
education, tracing and general administra-
tion. Note that women and adolescents often
have the necessary skills but lack the confi-
dence or language skills to come forward – an
outreach programme to identify them might
be necessary.
35. At the same time, other traditional skills
– for example in construction or well-digging –
should be harnessed. While specific measures
to develop self-reliance will vary with each
situation, their aim should always be to avoid
or reduce the refugees' dependence on out-
side assistance. The more successful measures
are generally those based on methods and
practices familiar to the refugees.
36. The third level is the education of the
community on life in their new situation,
which may be markedly different from their
previous experience. Public health education
in such matters as the importance of hygiene
in crowded conditions, mother and child care
and the use of unfamiliar latrines is an exam-
ple. As another example, if unfamiliar foods
or preparation methods have to be used,
immediate practical instruction is essential.
Education and guidance of this sort are best
given by the refugees themselves (including
women and youth), with outside assistance.
Refugee Representation
37. Refugee settlements are not, typically,
simple replicas of former community life, and
large numbers of refugees may be living
temporarily outside their traditional commu-
nity leadership structures. However, in nearly
every emergency, some refugee leaders,
spokespersons, or respected elders will be
present. It will be necessary to define with the
community the method of choosing leaders
to ensure fair representation and proper
participation in both the planning and imple-
mentation of the emergency programme.
The more the settlement differs from former
community life, the more important this
action is likely to be to the success of the
programme.
However, be aware that some new power
structures might emerge, for example
through force, and may exercise de facto
control over the population, but may not be
representative.
Generally, the smaller the settlement the
better – the overriding aim should be to
avoid high density, large camps.
Coordination
7
61

38. The system of refugee representation
should:
i. Be truly representative of the different in-
terests and sectors of the community, and
of both men and women;
ii. Include various levels of representatives
and leaders to ensure adequate represen-
tation and access for individual refugees;
iii. Avoid unconscious bias, for example on
the basis of language. Bear in mind that
there is no reason why a refugee should
be representative of the community simply
because he or she has a common language
with those providing outside assistance;
iv. Be based on traditional leadership systems
as much as possible but provided these
allow proper representation (for example,
if the traditional leadership system ex-
cludes women, there should nevertheless
be women representatives);
v. Be consistent with the physical divisions in
the layout of the site.
Key References
A Framework for People-Oriented Planning in
Refugee Situations taking account of Women,
Men and Children, UNHCR, Geneva,1992.
book for UNHCR’s Partners, UNHCR, Geneva
1996.
UNHCR Handbook; People-Oriented Planning at
Work: Using POP to Improve UNHCR Program-
ming, UNHCR, Geneva, 1994.
62

Each of the factors listed below would need to be evaluated against the particular context and
policy of the host government. At the beginning of the operation UNHCR should secure a suitable
meeting room for coordination meetings.
Membership
The nature of the coordinating body and its usefulness will be determined partly by its membership.
1. Criteria for participation:
i. Provision of direct services;
ii. Regular attendance at coordination meetings;
iii. Compliance with service guidelines and standards;
iv. Regular financial contributions to coordination mechanism.
2. Other organizations may wish to attend coordination meetings without full participation in the
coordination mechanism:
i. Organizations which may choose not to fully participate, e.g. ICRC;
ii. Funding organizations and donor representatives;
iii. Public interest groups;
iv. Military forces.
Functions of the coordination body
1. Meetings.
These may be needed at the central and the site level, and include:
i. Overall coordination meetings, which may be needed daily at the start of an emergency;
ii. Sectoral committee meetings (e.g. health, registration, water);
iii. Conferences.
2. Identification of needed services and soliciting voluntary agencies to assume responsibilities for
the provision of these services.
3. Allocation of donated commodities and financial contributions.
4. Guidelines and standards for the provision of services.
5. Orientation of newly arrived agencies.
6. Orientation of incoming staff.
7. Research and documentation.
8. Support for settlement coordination committees.
9. Coordination with agencies outside the country.
10. Information sharing.
11. Fund raising.
Coordination
7
63
Annex 1 – Elements of a Coordinating Body

1. Set clear objectives for the meeting
• Why is the meeting needed and what is the expected outcome? (Communication? Problem-
solving? Planning? Decision-making?)
• Who should attend the meeting?
• Should the meeting be formal or informal?
2. Prepare an agenda
• Make a written agenda with clear objectives and approximate timing for each item;
• Ensure that the agenda states why the meeting is needed;
• Make sure the agenda is realistic (not too many items) and sequence the items appropriately;
• Put the difficult, important issues near the beginning (perhaps dealing first with something
quick and simple);
• Plan breaks if the meeting is more than 1 hour in length;
• Avoid mixing information sharing and decision-making in the same meeting – hold separate
meetings for these functions.
3. Documentation
• Circulate a detailed agenda, list of participants and any background documentation (such as
minutes of previous meetings) in advance (but not too far ahead) of the meeting, 2 to 3 days
before is best;
• Indicate the time, place and duration of the meeting;
• Prepare audio-visual materials in advance.
4. Seating arrangements
• Choose a circular or rectangular table;
• Avoid a long, narrow table if possible as this makes communication more difficult;
• In an informal setting, a semicircle of chairs facing a flip chart is the best;
• Everyone should be able to see each other;
• Participants should not be too crowded or too far apart.
5. During the meeting
• Start on time;
• Have the participants introduce themselves if they do not know each other;
• Clarify the objective(s) of the meeting and review the agenda and time limits;
• Outline how the meeting will be conducted (methodology);
• Identify the rapporteur or secretary for the meeting;
• Ask the participants if they agree to the agenda and be flexible on minor changes if there is
consensus;
• If applicable, review action items of previous meeting(s);
• Make sure you have everyone's attention before opening the meeting.
64
Annex 2 – Tips on running a meeting

During the meeting the chairman or facilitator should
• Avoid getting personally involved in the discussions;
• Keep an overall view of the objective(s);
• Do not lose the thread of the argument;
• Stick to the agenda (but be flexible within agenda items);
• Ask for information and opinions;
• Summarize and reformulate key points (have the rapporteur or secretary use the flip chart to
record the points as they occur);
• Clarify and elaborate where needed;
• Concentrate on key issues and stop digressions;
• Test for consensus;
• Ensure everyone gets a chance to speak;
• Assign responsibilities and deadlines for agreed tasks (action, responsibility, and date by agenda
item);
• Set date, time and place for next meeting;
• Close the meeting on time, on a decided and positive note.
7. After The Meeting
• Keep a record of the meeting. It should include the following basic items:
i. A list of the participants noting those who were invited but did not attend ("apologies" list);
ii. The conclusions, decisions, recommendations and the follow up action required, by agenda
item, with the name of the person responsible for action and time frame;
iii. The time, date and place of the next meeting.
Note: working in small groups
Dividing the participants into small groups can be useful in large meetings (more than 12 partici-
pants), when discussions are lengthy. Depending on the subject, it can allow in-depth discussion on
specific questions and possibly help to solve problems.
Coordination
7
65

8
Implementing Arrangements
66

Introduction 1 68
Implementing Arrangements 2-12 68-69
Degree of Operational Responsibility of UNHCR
The Operational Role of the Government
The Operational Role of UN Agencies
Implementing Procedures 13-31 69-71
The Emergency Letter of Instruction (ELOI)
Implementing Agreements
Administrative Expenditure by Implementing Partners
Direct UNHCR Expenditure
Procurement
Contributions In Kind
Monitoring, Reporting and Evaluation 32-39 71-72
Special Considerations 40-50 72-73
Payment for the Purchase or Rent of Refugee-Occupied Land
Payment to Refugees
Provision of Services to the Local Population
Corruption
Political and Religious Activity
Key References 73
Annexes
Annex 1: Sample Letter of Mutual Intent to Conclude an Agreement 74-75
Annex 2: Procurement by a UNHCR Field Office 76-78
Annex 3: Example of a Standard Emergency Situation Report (SITREP) 79-80
Annex 4: Format for Reporting on Population in Emergency Situation Reports 81
ImplementingArrangements8
67

Introduction
1. Appropriate arrangements to imple-
ment an emergency operation will be funda-
mental to its success. UNHCR has a unique
statutory responsibility for the provision of in-
ternational protection. However, there is no
such unique statutory responsibility for the
provision and distribution of material assis-
tance to refugees, which might be carried out
by other organizations – governmental, UN
agencies, NGOs, as well as directly by UNHCR.
There are a number of factors which will in-
fluence the implementing arrangements for
assistance operations. This chapter outlines
implementing arrangements and procedures
in emergencies including monitoring, report-
ing and evaluation. UNHCR guidelines for
standard procedures must be referred to for
more detail.
Implementing Arrangements
2. Depending on the scale and needs of the
emergency, a number of different implement-
ing arrangements may be needed in the vari-
ous sectors. One organization might have op-
erational responsibility for health care, and
another for logistics. Even within a sector, op-
erational responsibility may have to be split
up. Different operational partners might have
responsibility for health care in different
refugee sites or communities. In UNHCR termi-
nology, an operating partner is an organiza-
tion or agency that works in partnership with
UNHCR to protect and assist refugees, and an
implementing partner is an operational part-
ner that signs an implementing agreement
with UNHCR.
3.
The origin of this policy is found in the Statute
of UNHCR. Article 1 requires the High Commis-
sioner to seek “permanent solutions for the
problem of refugees by assisting Governments
and, subject to the approval of the Govern-
ments concerned, private organizations...“. In
accordance with Article 10, the High Commis-
sioner “shall administer any funds, public or
private, which he/she receives for assistance to
refugees, and shall distribute them among the
private and, as appropriate, public agencies
which he/she deems best qualified to adminis-
ter such assistance”.
Degree of Operational Responsibility of
UNHCR
4. Although UNHCR normally seeks to im-
plement indirectly through an implementing
partner, there are circumstances in which it
may be necessary and/or clearly in the inter-
ests of refugees for UNHCR to assume greater
operational responsibility. UNHCR’s degree of
direct operational responsibility will vary for
each emergency situation, and also with time
as the operation evolves.
5. Factors influencing the degree of opera-
tional responsibility undertaken by UNHCR,
other organizations and the government in-
clude the following:
i. The government’s capacity to manage the
refugee emergency, because of the scale,
nature, location of the emergency, and
ability of existing government structures to
respond;
ii. The existence and capacity of other organi-
zations in the country, and in the sectors
where assistance is most needed;
iii. The stage of the emergency. At the start of
an emergency, the government itself fre-
quently has full operational responsibility.
For example, a new influx is often first
assisted by the local district and provincial
authorities. On the other hand, in other
circumstances, it is often at the start of an
emergency where UNHCR has the greatest
operational responsibility because there may
be no suitable operational partner immedi-
ately available within the country.
6. Where UNHCR does assume a high de-
gree of operational responsibility, swift action
is needed to ensure that the necessary person-
nel and expertise are available, by obtaining
the rapid deployment of sufficient UNHCR
staff (see chapter 20 on administration and
emergency staffing). At the same time, steps
should be taken to identify and mobilize
other organizations to assume responsibilities
in the various sectors as soon as possible.
The Operational Role of the Government
7. Whatever the implementing arrange-
ments, overall responsibility remains with the
host government, assisted by UNHCR. The
government’s concurrence must, in accor-
dance with Article 1 of the Statute, be sought
on the proposed implementing arrangements.
8. The government may not have the
capacity to be the primary operational organi-
Whenever possible UNHCR seeks to imple-
ment assistance indirectly through an im-
plementing partner rather than directly.
68

zation, but may play a major role in the imple-
mentation of various activities of UNHCR and
donors. In this case, it is preferable to ensure
that the policy arm of the government (e.g.
the Ministry of the Interior) is separate from
the “operational” entities, since, as recipients
of UNHCR funds, the relationship with the lat-
ter is substantially different.
Every effort should be made to resist the
creation of such specialized departments.
The Operational Role of UN Agencies
9. UNHCR always retains responsibility for
the protection needs of refugees, but the
refugees’ material needs are likely to fall
within sectors for which other organizations
in the UN system have special competence
through their mandate, experience and ca-
pacity, e.g. WFP and UNICEF. The roles and
responsibilities of UN agencies are defined
through their mandates and MOUs, and situa-
tion-specific responsibilities are set out in
exchanges of letters and agreements – this
should avoid duplication, minimize gaps, and
clarify roles on the basis of recognition of
comparative advantages.
10. Where the government is not the imple-
menting partner in a particular sector, there
may be advantages to selecting a national
organization or an NGO with the required
capacity as a partner. National or locally-based
organizations may already be delivering emer-
gency assistance, would already have staff on
the ground, and would already be familiar
with the country.
11. Many international NGOs have great ex-
perience of refugee emergencies and some
can deploy teams and resources at short
notice, both for specific sectors and for gen-
eral management. In addition to their own
staff, they will also know of a wide circle of in-
dividuals with the appropriate skills and expe-
rience. International NGOs already working in
the country may be strengthened by their
headquarters. For instance, under the overall
responsibility of the national Red Cross or Red
Crescent Society, the IFRCRCS may be able to
help strengthen quickly the capacity of the
national society to implement the emergency
operation.
12. Criteria for the selection of implement-
ing partners may be found in Chapter 4 of the
UNHCR Manual.
Implementing Procedures
13. Authority to implement the activities en-
visaged in the operations plan must be given
formally through implementing instruments.
These define the conditions which govern
project implementation and authorize the
obligation and expenditure of funds.
14. Authority to implement is firstly dele-
gated internally within UNHCR. This is usually
given through a Letter of Instruction (LOI)
which authorizes the UNHCR Representative
to implement projects directly or to enter into
implementing agreements with implementing
partners. Based on the internal delegation of
authority, implementing agreements can be
signed with UNHCR’s implementing partners.
The Emergency Letter of Instruction (ELOI)
15. An Emergency Letter of Instruction
(ELOI) is simpler in form and procedure than a
“normal” LOI and is used to delegate imple-
menting authority rapidly to the field. It is
usually sent via e-mail, fax or telex. The ELOI
gives the Representative in a country where
an emergency is rapidly evolving the immedi-
ate authority to incur expenditures, and to en-
ter into agreements for project implementa-
tion with implementing partners. It is not
intended to cover the entire emergency oper-
ation, but to permit a rapid response to imme-
diate needs, pending the formulation of an
assistance project based on a detailed needs
and resources assessment. Thus, in order to
ensure continued assistance once these funds
are exhausted or the ELOI project is termi-
Any party disbursing UNHCR funds must
have a formal signed agreement with
UNHCR.
Implementing procedures are subject to
change. The forms, terms, documentation,
procedures and references (e.g. chapter 4 of
the UNHCR Manual) referred to in this sec-
tion from paragraphs 13 to 31 may change
from time to time. However, the basic prin-
ciples should remain the same.
It is preferable that the implementation of
programmes be carried out by existing line
ministries – e.g. the Ministry of Health for
health programmes. As a rule, new govern-
ment departments should not be specifi-
cally created to respond to the refugee
emergency.
69

nated the manager of the operation should,
as soon as possible, send Headquarters a
detailed project proposal for the issuance of
an LOI, in accordance with the procedures set
out in Chapter 4 of the UNHCR Manual.
16. The minimum information which the
Field Office must send to Headquarters in
order that an ELOI be prepared is a budget
proposal in US dollars at sector level. No pro-
ject description or workplan is required.
17. Headquarters can then issue an ELOI
with the following basic information:
i. Total requirements;
ii. Initial obligation level;
iii. Purpose of the expenditure (at sector level);
iv. Any time limit applicable to the expendi-
ture;
v. Project symbol;
vi. Summary budget at sector level.
18. Actual expenditure under an ELOI must
be recorded at a more detailed level (sector
activity or, preferably, sub-item). It must be
charged to the appropriate project under
which implementation is taking place. A
voucher must be completed to record every
disbursement made, showing the name of the
payee, the amount, the project symbol, the
purpose and date of disbursement. The
voucher should be signed by the payee or
supported by receipted bills and sent to Head-
quarters with the monthly accounts.
19. In certain circumstances, the ELOI may
not be necessary, as it will be possible to real-
locate funds under an existing LOI.
Implementing Agreements
20. Implementation of all or part of a pro-
ject may be sub-contracted to one or more
implementing partners. A party disbursing
UNHCR funds must have a formal signed
agreement with UNHCR. The agreement must
be based on the internal delegation of au-
thority, and must comply with the terms of the
authority (LOI, ELOI, etc.) and the Financial
Rules. The standard clauses which must figure
in any implementing agreement are described
in Chapter 4 of the UNHCR Manual.
21. If the government or an international or-
ganization advances relief supplies from their
own resources, UNHCR may agree in writing
to reimburse them in cash or kind, provided
the maximum US dollar commitment is speci-
fied and does not exceed unobligated funds
available under the ELOI or other existing
authority. Any such commitments should im-
mediately be reported to Headquarters.
22. An agreement with the government cov-
ering the provision of assistance is quite sepa-
rate from the administrative agreement that
governs the status of the High Commissioner's
representation in the country. Where this
administrative agreement (often referred to
as the "UNHCR Cooperation Agreement")
needs to be concluded, special instructions will
be given by Headquarters. See also annexes to
the Checklist for the Emergency Administrator
for examples of such agreements.
Letter of Intent
23. If the implementing partner must start
providing assistance before there is time to
conclude an agreement, a signed “Mutual
Letter of Intent to Conclude an Agreement”
can authorize the obligation of funds. This is a
temporary arrangement until there has been
time to develop the detail of the agreement.
The letter must include certain basic clauses.
Annex 1 contains a sample format for such a
letter and the basic clauses.
Agreements
24. The form of the agreement will depend
on the circumstances and on the identity of
the implementing partner. The agreements
exist in two different formats. Bipartite agree-
ments are for projects implemented by a
governmental or a non-governmental organi-
zation. Tripartite agreements are for projects
implemented by an non-governmental organ-
ization and where the host government is a
third signatory to the agreement. The individ-
ual signing on behalf of UNHCR should be the
addressee of the ELOI or LOI. The agreement
sets out the responsibilities of each party, for
example the government's contributions to
the programme (land, services etc.) and its
undertakings on facilitating the import and
transport of relief supplies (traffic and landing
rights, tax and customs exemptions, etc.).
Administrative Expenditure by Implementing
Partners
25. UNHCR looks to implementing partners to
contribute their own resources to the refugee
programme, and to develop the capacity to
meet their own support costs, in particular their
headquarters support costs. UNHCR recognizes,
however, that certain types of support costs
70

could be a legitimate charge on UNHCR volun-
tary funds. Support costs (as opposed to opera-
tional costs) are defined in Chapter 4 of the
UNHCR Manual, as are the guidelines applica-
ble to the coverage of such costs.
Direct UNHCR Expenditure
26. In many cases, there may be a need for
direct UNHCR project expenditure in addition
to programme delivery, and administrative
support. This might include international pro-
curement by UNHCR, clearing, storage and
internal transport expenses for contributions
in-kind, and initial direct operational expendi-
ture by UNHCR Field Officers at the refugee
site.
Procurement
27. The Representative may enter into a
contract (or series of related contracts1
for the
procurement of goods and services up to a
certain limit (US$100,000 in 1998), without
special Headquarters approval, but subject al-
ways to the appropriate authority (e.g. the
ELOI) and procedures.
28. Where the Representative needs to enter
into a contract (or series of related contracts)
in excess of this amount, approval must be ob-
tained either from Headquarters, or from the
Local Committee on Contracts. A Local Com-
mittee on Contracts can be established when
circumstances demand, for example at the
beginning of an emergency where required
goods and services are available locally. It can
only be established with the approval of
Headquarters (according to the procedures in
Annex 2).
29. In all cases, the Representative must
ensure that there is always due assessment of
the available alternatives, including competi-
tive bidding, before procuring any goods or
services.
30. Procurement procedures are described in
Chapter 4 of the UNHCR Manual, and set out
in Annex 2. See also chapter 18 on supplies
and transport.
Contributions In Kind
31. Contributions in kind may be made to-
wards needs foreseen under the emergency
programme. Whether these are made bilater-
ally or through UNHCR, their value (generally
assessed on the same basis as foreseen in the
budget costing) will normally be credited
against the appropriate budget item, and the
cash requirements through UNHCR for that
item reduced accordingly. This mechanism
may need to be carefully explained to the
government and implementing partners. For
all contributions in kind made through
UNHCR, a separate project or an “in kind LOI”
will be established by Headquarters for the
value of the contribution. The addressee of
the relevant LOI is required to provide reports
from the field to Headquarters on the arrival
and distribution of the contribution. Para-
graph 53 of chapter 9 on external relations
discusses contributions in kind received by the
Field.
Monitoring, Reporting and Evaluation
32. Control of UNHCR funds by the UNHCR
field office and operational partners, and
monitoring and evaluation, should be in ac-
cordance with established UNHCR procedures
and the relevant clauses of the ELOI or LOI.
Proper project control, including the close
monitoring of obligation and expenditure lev-
els, is particularly important in an emergency
because of the risk of over-expenditure and
the need to reallocate under-used resources
without delay.
33. Careful and close monitoring of the
activities and outputs is essential. Whatever
the implementing arrangements, a UNHCR
presence at, or at least frequent visits by the
same person to, the site of the refugees will
be required.
34. Monitoring is the ongoing review of
an operation or project during its implemen-
tation to ensure that inputs, activities, and
outputs are proceeding according to plans
(including budget and work schedules).
Monitoring tracks progress towards objec-
tives, and that progress should be analyzed
and evaluated by management, who can make
improvements and take corrective measures
to better achieve those objectives. Monitoring
can be summed up in the question: “Are we
doing the thing right?”.
35. Projects should also be evaluated to
analyze the goals of the project themselves:
their relevance and achievability – this can be
summed up in the question “Are we doing
and have we done the right thing?”.
71
1
Related purchases are contracts entered into with one
supplier within the previous 90 days which amount to
$100,000 or more, not including contracts that have been
approved by the Committee on Contracts.

36. Monitoring and evaluation should not
be considered as time consuming detractions
from protecting and assisting refugees, but as
important tools in an emergency to ensure
that activities being carried out retain their
relevance in rapidly changing situations, and
continue to address the most urgent prob-
lems. The circumstances of refugee women
and children should be specially monitored;
their circumstances could and should be used
as benchmarks for monitoring the effective-
ness of the overall operation.
37. Reports should be in standard formats or
cover standard issues, in order to ensure im-
portant information is covered but avoiding
unnecessary detail. Always bear in mind the
purpose of the report, and who will be read-
ing it, keeping it concise and to the point.
Energy should not be wasted on exchanging
information that is not acted upon – a report
that is not read and acted upon is a waste of
paper and time.
38. See Annex 3 for a suggested format for a
standard emergency situation report.
Specific reports will be required for various
sectors like protection, health and community
services.
39. Regular reports should be made by the
implementing partner to UNHCR at field level.
The reporting obligations of implementing
partners must be set out in the implementing
agreements. The Field must also send regular
reports to Headquarters - implementing part-
ners’ reports that are forwarded to Headquar-
ters must always be accompanied by an analy-
sis and comments from the Representative.
Special Considerations
40. In a refugee emergency, staff may be
faced with a number of questions on which
the following guidance may be helpful.
Payment for the Purchase or Rent of Land
Occupied by Refugees.
41. As a matter of policy, UNHCR does not
buy or rent land, which the government of
the country of asylum is expected to provide.
Headquarter’s approval is required for excep-
tions to this policy. Construction on the land
may however be financed by UNHCR.
Payment to Refugees
42. The issue of paying refugees in cash or
kind for certain assistance activities (e.g. some
community services, establishing basic infra-
structure and shelters) will inevitably arise.
How this issue is resolved can have a crucial
effect on a settlement's character.
However, the absence of payment may mean
that tasks essential to the settlement's well-
being are either not done or have to be done
by paid outside labour.
43. In the first days of a settlement's exis-
tence payment to refugees would not nor-
mally be appropriate. In this start-up phase
refugees should assume their responsibility to-
wards themselves and their fellows to partici-
pate in the establishment of their settlement.
Even payment-in-kind is probably inappropri-
ate at this stage. In addition to the unfortu-
nate impression of creating a right to pay-
ment, it may also involve commitments which
cannot continue to be met, or have to be met
at the expense of the entire settlement's gen-
eral ration. Problems with the supply system
are almost inevitable at the beginning of a
settlement's life and no group should in such
circumstances get extra commodities to the
direct detriment of others.
44. In the longer-term, certain types of com-
munity work frequently start to emerge as
areas where standards will drop if some form
of payment is not given. This is often the case
with key public health services whose impor-
tance is not always correctly understood by the
refugees. Before starting any payment scheme,
calculate its full potential cost and ensure that
the required extra funds or food are available.
The continuing financial implications for a
large refugee population may be considerable.
It will be necessary to have some very clear but
restrictive criteria for paid community work.
The wage system introduced should not in-
hibit progress towards a self-reliant settle-
It should be borne in mind that, after pay-
ment is introduced for one type of job or
for one group of workers, others will see
this as a precedent.
Payment can destroy the sense of responsi-
bility refugees feel for their welfare.
Situation reports should be sent as a matter
of routine.
Sufficient information must be available to
decision-makers so that the operation can
be adjusted to meet changing needs or to
correct shortcomings.
72

ment. Those agencies responsible for different
sectoral services should meet the wage costs
of refugees working in that sector.
45. As the refugees are already supported,
remuneration levels should be well below na-
tional rates. It is important that this remuner-
ation be fairly applied to all refugees doing
broadly the same work. A major cause of dis-
cord at many refugee sites has been the pay-
ment by different organizations of markedly
different rates to refugees for the same work.
Whether or not there are differentials recog-
nizing different levels of skill will be a matter
to decide in consultation with the refugees.
Provision of Services to the Local Population.
46. The local population should not see the
refugees as a burden, because of their effect
on existing local services and environment,
nor should the refugees be a cause of resent-
ment, because of benefits which may seem to
accrue only to them. So activities to benefit
the refugees such as maintaining or improving
the local infrastructure (roads, hospitals and
schools) or to look after the local environ-
ment, could help avoid or diminish resent-
ment on the part of the local population.
47. Bilateral aid programmes and other
organizations, both within and outside the
UN system, should be encouraged to help
affected nationals. Assistance available to
refugees should take account of the condi-
tions of nationals in the area and a flexible
approach should be adopted – the principle is
that provision of services to refugees should
not be higher than that available to the local
population.
Corruption
48. UNHCR should ensure that all concerned
with the provision of assistance know clearly
what UNHCR policy is regarding corruption.
UNHCR is obliged by donors and by its man-
date to ensure that all funds distributed by it
are properly used for the benefit of refugees
and all transactions must be in accordance
with the Financial Rules. UNHCR should clearly
specify which practices are acceptable and
proper and which are not. It should also be
clear that breaches of the policy will not be
tolerated, and this message will be reinforced
if rigorous monitoring and control are appar-
ent to all parties.
A standard scale is essential.
Political and Religious Activity
49. Everyone has a right to political and reli-
gious expression: however, refugees are also
obliged to conform to the laws and regula-
tions of the host country as well as to the
measures taken for the maintenance of public
order. UNHCR itself is obliged to be non-politi-
cal2
. Responsibility for security and public
order at the refugee site always rests with the
government. To help maintain order, site plan-
ning should take into account any need there
may be to physically separate any previously
hostile groups among the refugees.
50. Other organizations active in the deliv-
ery of assistance may have a religious aspect in
their normal work. Some are traditional part-
ners of UNHCR, and the separation of reli-
gious and other activities is long established
and well understood, but for others it may be
useful to recall the basic principles. Religious
activities by those outside the refugee com-
munity, where permitted by the authorities,
must be clearly dissociated from the delivery
of assistance and services to refugees.
Key References
book for UNHCR’s Partners, UNHCR, Geneva,
1996.
Supplies and Food Aid Field Handbook, UNHCR,
Geneva, 1989.
UNHCR Manual, Chapter 4, UNHCR, Geneva,
1995 (and updates).
No proselytizing should take place in associ-
ation with the provision of services such as
education, health and community services.
73
2
Para. 2 of the Statute of the United Nations High
Commissioner for Refugees states: ”the work of the
High Commissioner shall be of an entirely non-political
character; it shall be humanitarian and social...”

NATIONS UNIES UNITED NATIONS
HAUT COMMISSARIAT HIGH COMMISSIONER
POUR LES REFUGIES FOR REFUGEES
Date
Notre/Our code:
Dear
I should like to refer to our exchanges [add details as appropriate] concerning the implementa-
tion by [name of implementing partner] on behalf of the United Nations High Commissioner
for Refugees (UNHCR) of a programme of emergency assistance to [origin and number of bene-
ficiaries].
It is my understanding that it is our mutual intention to conclude and sign as soon as possible an
agreement covering our cooperation in the above mentioned programme. This agreement will
incorporate, inter alia, the attached clauses and will require [name of implementing partner] to
report in financial and narrative form on the use of all contributions received from the High
Commissioner. The conclusion of an agreement embodying these requirements is mandatory
under the Financial Rules of UNHCR whenever funds are made available by UNHCR.
I should be grateful if you would confirm in writing below that this understanding is correct, and
your agreement that the use of the sum of [amount in local currency or in US dollars], that the
High Commissioner intends to make available to [name of implementing partner] on receipt of
this confirmation, will be considered as subject to the terms of the Agreement, once concluded
and signed.
[signature and title of addressee of ELOI]
I confirm that the understanding set out above is that of [name of implementing partner], which
agrees that the use of the sum of [amount in local currency or in US dollars] will be considered as
subject to the terms of the Agreement, once concluded and signed.
[signature and title of addressee of letter above, and date]
MANDATORY CLAUSES
Clauses governing Rate of Exchange (1.08 or 2.03), Maintenance of Financial and Project Records
(3.08), Inspection and Audit (3.11 and 3.12), Audit Certificate (3.13) and Non-Liability of the High
Commissioner (4.05 and 4.06) are STATUTORY REQUIREMENTS and cannot be excluded (para-
graph numbers given are those from UNHCR Manual, Chapter 4, Appendix 8). These clauses are
set out below:
74
Annex 1 – Sample Letter of Mutual Intent to Conclude an Agreement

Rate of Exchange
1.08 (if the government is a signatory to the Agreement): grant the most favourable official rate
of exchange for all conversions into local currency of funds provided by the High Commis-
sioner for the implementation of the project governed by the UNHCR Agreement;
2.03 (if an NGO is the implementing partner): apply the most favourable official rate of exchange
for all transactions relating to the implementation of the project governed by the UNHCR
Agreement;
Maintenance of Financial and Project Records
3.08 maintain separate project records and accounts containing current information and documen-
tation which, inter alia, shall comprise:
a) copies of the UNHCR Agreement(s) and all revisions thereto;
b) payment vouchers, clearly showing the (Sub-)Project symbol, the name of the payee, the
amount, the purpose and date of disbursement, evidencing all payments made and with all
pertinent supporting documentation attached;
c) vouchers evidencing the receipt of all remittances, cash or any other form of credit to the pro-
ject account;
d) periodic analyses of actual expenditure against the project's budget;
e) records of all financial commitments entered into during the project;
f) reports by auditors on the accounts and activities of the project;
Inspection and Audit
3.11 facilitate inspection and audit of the project governed by the UNHCR Agreement by the
United Nations Internal Audit Service or any other person duly authorized by the High Com-
missioner on behalf of the United Nations. Should they at any time wish to do so, the United
Nations Board of Auditors may also carry out an audit of the project. Audits of the project will
include, inter alia, the examination of the project accounting records in order to determine
that the charging of administrative and operational support costs to the project complies with
those specified in the annexes to the UNHCR Agreement. For auditing purposes, project
accounting records shall be retained for the six years following the project's termination;
3.12 facilitate visits by the High Commissioner or of any other person duly authorized by him/her to
the project site(s) to evaluate the progress and achievements of the project during its period
of implementation or thereafter;
Audit Certificate for Governmental Implementing Partners
3.13 submit to the High Commissioner, within three months of the final date for liquidation of
commitments, an audit certificate issued by the appropriate government audit authority, to-
gether with such comments as the auditor may deem appropriate in respect of project opera-
tions generally and, in particular, the financial situation as reported by the Government;
Audit Certificate for International NGO Implementing Partners
3.14 submit to the High Commissioner, within six months of the end of the Agency's fiscal year, a copy
of its consolidated audited financial statements, wherein UNHCR funding is clearly identified,
issued by an independent audit authority and as presented to and endorsed by the Agency's
governing body. The audit report and opinion should include such comments as the auditor may
deem appropriate in respect of UNHCR funded project operations generally and, in particular,
the opinion should clearly indicate that UNHCR funds were duly included in the audit;
Audit Certificate for National NGO Implementing Partners
3.15 for all UNHCR Agreements for a value of US$100,000 and above, submit to the High Commis-
sioner, within six months of the final date for liquidation of commitments, an audit certificate
issued by an independent audit authority. The audit report and opinion should include such
comments as the auditor may deem appropriate in respect of project operations generally
and, in particular, the financial situation as reported by the Agency to UNHCR in its final Sub-
Project Monitoring Report. For all UNHCR Agreements for a value of less than US$ 100,000,
UNHCR reserves the right to request an audit in accordance with Clause 3.11 above.;
Non-liability
4.05 not be liable to indemnify any third party in respect of any claim, debt, damage or demand
arising out of the implementation of the project governed by the UNHCR Agreement and
which may be made against the other parties to the Agreement;
4.06 not accept liability for compensation for the death, disability or the effects of other hazards
which may be suffered by employees of the other parties to the UNHCR Agreement as a result
of their employment on work which is the subject matter of the Agreement.
75

1. Introduction
1.1. The procedures applicable to the procurement of goods and/or services by UNHCR Headquar-
ters or UNHCR offices in the field (other than contractual arrangements for the employment
of staff) vary according to the US dollar value (at the prevailing United Nations rate of
exchange) of the goods or services, and are described below.
1.2 For all purchases of substantial quantities of relief or other supplies by UNHCR offices in the
field, Representatives should nominate a purchasing/logistics focal point with a clear line of
responsibility. Local purchases will be initiated by, or at least cleared with, the purchasing/-
logistics focal point. In all circumstances, including the evaluation of contracts for the supply
of goods and services or consultancies, the procedures described below will apply. The term
"Purchase Order" is to be read as also applying to other forms of authorization used in rela-
tion to contracts for services or corporate or institutional consultancies.
1.3 In all cases of procurement of goods and/or services, the procedures and controls applied
should be in accordance with Appendix 8 of Chapter 4 of the UNHCR Manual and must
provide an open, competitive, qualitative and accountable process to obtain such goods or
services which meet project requirements at the lowest available cost. It is the responsibility of
the addressee of the Letter of Instruction to ensure that the relevant procedures are adhered to.
1.4 All contracts entered into for the procurement of goods and/or services should ensure exemp-
tion from, or reimbursement of, all customs duties, levies and direct taxes on services and
goods, supplies or any other articles imported or domestically purchased.
1.5 It is the responsibility of the Representative to ensure that each UNHCR office in the field
maintains a register of all commercial contracts entered into and that a sequential number is
assigned to every such contract.
1.7 For a value of less than US$ 2,500
A Purchase Order may be issued without recourse to formal tender, provided that funds are
available under the Letter of Instruction and that at least three informal offers or prices have
been considered and the best offer has been selected.
1.8 For a value of over US$ 2,500 and up to US$ 5,000
A Purchase Order may be issued provided that funds are available under the Letter of Instruc-
tion and that at least three informal quotations have been compared and the best offer has
been selected. A written record of the quotations and the reasons for the selection must be
kept.
A Purchase Order may be issued provided that funds are available under the Letter of Instruc-
tion and that selection has been made on the basis of at least three competitive offers
obtained in response to a formal Quotation Request sent to selected suppliers inviting them
to submit sealed quotations within a specified time frame. Chart 3.F and Annex VIII of the
Supplies and Food Aid Field Handbook provide guidelines and an example of a Quotation
Request. The Quotation Request must stipulate that all offers must be received at the UNHCR
office in signed and sealed envelopes and marked with the Quotation Request number. All
quotations received must remain sealed and must be kept under lock and key until the expira-
tion of the bid deadline. All bids must be opened before a witness by the Administrative
Officer or the Officer in charge of administration in the office, and must be initialled by both
the person opening the bids and the witness. The witness shall be selected by the Representa-
tive and drawn from the professional or national officer categories. All formal quotations will
be compared on a Tabulation of Bids form as per Annex IX of the Supplies and Food Aid Field
Handbook. The recommended supplier and the reasons for selecting that supplier will be
stated thereon.
Representatives will establish a Purchasing Committee to consider bids and to make the
appropriate recommendations. The approval of Headquarters is not required. Rules and
procedures concerning Purchasing Committees and their composition are set out below. In a
76
Annex 2 – Procurement by a UNHCR Field Office

country with more than one Field/Sub Office, the Representative may wish to establish Pur-
chasing Committees at different duty stations. Depending on local costs and current exchange
rates, Representatives may also lower the financial limit of procurement to be considered by
the Purchasing Committee. The Committee will consider quotations subject to the same condi-
tions as set out in paragraph 1.9 above. If appropriate, the Representative and/or the Commit-
tee may wish to request specialist advice from the Programme and Technical Support Section
or the Supply and Transport Section at Headquarters.
1.11 For a value of US$ 100,000 or more:
A submission must be made to the Committee on Contracts at Headquarters except in cases
where Headquarters has authorized the establishment of a Local Committee on Contracts as
described in 3 below. For submissions to the Headquarters Committee on Contracts, a mini-
mum of four formal quotations must be requested and considered by the Purchasing Commit-
tee which will make a proposal as to the most suitable supplier to the Committee on Contracts
through the relevant Desk at Headquarters. In cases where Headquarters has authorized the
establishment of a Local Committee on Contracts, the latter may evaluate and decide on all
bids without recourse to the Purchasing Committee. Nevertheless, in all cases, the relevant
specialists in the Programme and Technical Support Section and the Supply and Transport
Section must be consulted before or during the tendering and evaluation stages so as to
ensure compliance with technical requirements and that prices are compatible with interna-
tional market rates for the goods or services under consideration. Submissions to the Commit-
tee on Contracts should include information as shown in Chart 3.G of the Supplies and Food
Aid Field Handbook. After approval by the Committee on Contracts (or a Local Committee on
Contracts), a Purchase Order may be issued.
2. Purchasing Committee
2.1 Procurement of goods or services by a UNHCR office in the field for a value of over US$ 50,000
and up to US$ 100,000 must be approved by a Purchasing Committee. This Committee will
also prepare proposals to the Headquarters Committee on Contracts for procurement for a
value of over US$ 100,000 in cases where Headquarters has not authorized the establishment
of a Local Committee on Contracts. The Purchasing Committee will be established and chaired
by the Representative and will consolidate the requirements, oversee the tendering process,
select suitable local suppliers and record its recommendations in writing.
2.2 The Committee will be composed of Members and alternate members designated by the
Representative and drawn from the professional or national officer categories. Staff members
responsible for procurement should be excluded from membership. In cases where several
implementing partners require similar supplies the Representative may consider including in
the Purchasing Committee staff from implementing agencies. A quorum will consist of three
Members.
2.3 The staff member in charge of procurement should present a written proposal to the Pur-
chasing Committee which will include information on the goods or services to be procured as
per Chart 3.G of the Supplies and Food Aid Field Handbook. The minutes of the meeting will
be taken and issued (at least in draft) within two working days after the meeting. Alterna-
tively, particularly in an emergency, Members of the Committee may approve purchase by
signature of the proposal with appropriate comments. In general, the Committee should
adopt procedures similar to those of the UNHCR Committee on Contracts as set out in Annex
8.5 of Chapter 4 of the UNHCR Manual, except for the provisions concerning emergency
procedures.
3. Local Committee on Contracts
3.1 In a UNHCR office in the field, the Representative may request Headquarters to approve the
establishment of a Local Committee on Contracts, particularly in the early stages of an emer-
gency operation and when required goods or services are known to be available locally or re-
gionally. The authority to establish a Local Committee on Contracts must be obtained from
Headquarters, which will normally stipulate the purpose, the geographic, time and financial
limits, the necessity to apply the relevant rules and procedures and, if applicable, the necessity
to consult the Supply and Transport Section or the Programme and Technical Support Section
on the prices and sources of supply of commodities and/or services available in the region. The
Committee will be chaired by the Representative or by a formally designated alternate, and
77

will be composed of at least three professional staff members. If there is no quorum, the
matter will be referred to the Committee on Contracts at Headquarters. The Local Committee
on Contracts will consider quotations subject to the same conditions as set out in paragraph
1.9 above.
3.2 All requests for the establishment (or the extension of the period of validity) of a Local Com-
mittee on Contracts should be sent via the Desk to the Chairman of the Committee on Con-
tracts who will check the criteria and the justifications provided, and, if appropriate, request
the Secretary of the Committee on Contracts to prepare an authorizing communication. The
authorizing communication should be cleared by the relevant Regional Bureau and the Chief
of the Supply and Transport Section, and be authorized by the Chairman of the Committee on
Contracts. Requests for the establishment of a Local Committee on Contracts must include
a full justification as well as information on the requested time and financial limits, and
must also confirm that the goods or services being sought are available locally or regionally
and that the requisite minimum number of professional staff would be available to act as
Members of the Local Committee on Contracts. Requests must include the names of three
members and three alternate members.
3.3 The Representative shall appoint a secretary to the Local Committee on Contracts to receive
submissions to the Committee, to schedule meetings and secure the relevant documentation,
to conduct required correspondence, to maintain the Committee's files and to prepare and
distribute minutes of the Committee's proceedings.
3.4 Copies of the minutes and proceedings of each meeting of the Local Committee on Contracts,
together with a Tabulation of Bids form and copies of the contracts entered into or purchase
orders placed (and any amendments to these) must be forwarded to the Secretary of the Com-
mittee on Contracts at Headquarters who will present these to the Chairman and Members of
the Committee on Contracts for their comments. The minutes must contain a summary of the
discussion, the reasons for decisions taken, details regarding the contractor or supplier
selected and the potential costs involved.
78

1. In emergencies, it is essential that regular situation reports reach the outside world (other UN
agencies, implementing partners). The frequency of such reports will be determined by the
characteristics of the situation; more frequent reports will be necessary in the initial stage of an
emergency. Situation reports should give an overall view of the situation with sufficient factual
content and explanation of changes since the last report to answer rather than raise substantive
questions. By indicating progress achieved, problems encountered and steps being taken or
planned to overcome these problems, the reports should give a cumulative picture of how the
needs of the refugees are being met. It should report on actions including actual and planned
activities; however, it should not dwell on intentions.
The SITREP should:
❏ Be short;
❏ Focus on priority areas;
❏ Give quantitative data in a standard format (e.g. give the death rate as deaths/10,000/day NOT
the number of people who have died);
❏ Highlight trends (e.g. increasing/decreasing water supply, increase/decrease in arrival rate);
❏ Clearly say who is expected to take any actions which are specified.
2. A suggested format is given below. Information contained in the SITREP should be analyzed
and consolidated before being passed on to the next management level. The practice of simply
copying “raw” and un-analyzed information from one level to another should be avoided. If
the same format is used by all levels from site to central office to Headquarters, it will make it
easier to consolidate reports from various areas. Major headings should as a rule be the same in
each report, indicating "no change" if appropriate. The report can either be structured by
sector of assistance with sites covered under each sector, or alternatively, by site, with sectors of
assistance covered under each site heading. In either case, the information under each sector of
assistance and for each location should cover as applicable:
i. Current situation;
ii. Particular problem areas, remedial action planned with time frame;
iii. Any variation from overall implementing arrangements;
iv. Any action required from the addressee of the SITREP.
3. The reports should be sequentially numbered, copied to other UNHCR offices as appropriate
(including the UNHCR liaison office in New York). The report may be used as the basis for wider
situation reports issued from Headquarters.
79
Annex 3 – Example of a Standard Emergency Situation Report (SITREP)

SITREP (number)
COUNTRY
COVERING PERIOD (date) TO (date)
Drafted, cleared, authorized by ( ) on (date).
A. GENERAL SITUATION
B. MAJOR DEVELOPMENTS
Summary of general assessment of situation, assessment of refugee location, and field deploy-
ment of UNHCR staff. Summary of major trends including protection.
C. REFUGEE STATISTICS AND REGISTRATION
By location in country of origin or by distinct groups if not self-evident. Explanation of changes
since last report. Indication of sources, e.g. government, UNHCR, etc. Any additional informa-
tion (as relevant) on gender breakdown, vulnerable cases, variances between UNHCR and offi-
cial figures, group or individual determination, etc. A format for reporting on population in
emergency situation reports is given in Annex 1 of chapter 11 on population estimation and
registration.
D. PROTECTION AND DURABLE SOLUTIONS
Summary of any developments.
E. OPERATIONS
E.1. Coordination
Government departments, UN system, NGOs – both at central and field levels.
E.2. Overall Implementing Arrangements
Role of authorities. Operational role of UNHCR. Role of UNHCR's government counterparts,
other UN agencies, international organizations and NGO partners. Other sources of significant
assistance.
E.3. Assistance
Summary of main developments since the last report, broken down by sector and/or site, as
applicable. Additional information provided could include major problems encountered in
programme delivery and modifications required to implementing arrangements.
F. EXTERNAL RELATIONS
Significant events in relations with donor government representatives, with diplomatic missions
in general and with the media.
G. ADMINISTRATION AND STAFFING
Establishment of UNHCR presence, office premises, vehicles and equipment, staffing arrange-
ments, local recruitment, etc.
80

81
Period: From to
Annex 4 – Format for Reporting on Population in Emergency Situation Reports
Decreases Pop. at end of period
Type / Current Origin / Pop. New Vol. Resettle- Other Total % of % of
status of location from at start arrivals return ment total total
popu- of 0-4 who are
lation period years* female*
*Estimate
Main source of information is ❏ Government; ❏ UNHCR; ❏ NGO
Main basis of the information is ❏ Registration; ❏ Estimate

Relations with the Government and Diplomatic Corps 1-11 84
Briefing Meetings
Relations with the Media 12-42 85-88
Introduction
General Guidelines for Relations with the Media
Locally-Based Media
Information Sharing with the Government
Field/Headquarters Information Sharing
Tips for Interviews
Guidelines for Appearances on Television
Visibility of the Operation
Funding and Donor Relations 43-63 88-90
Emergency Fund
Central Emergency Revolving Fund
Using Existing Funds
Communicating Needs to Donors
Preparation of an Emergency Appeal
Communication Between the Field and Headquarters
Reporting to Donors and Special Requirements
Formal Written Communications 64-71 90-91
Annexes
Annex 1: Member States of the Executive Committee of the High Commissioner’s 92
Programme (EXCOM)
Annex 2: Example of a Note Verbale 93
ExternalRelations9
83

Relations with Government and
Diplomatic Corps
1. All matters of protocol relating to estab-
lishing a new UNHCR presence in an emer-
gency are likely to be handled by the Foreign
Ministry in the same way as for other United
Nations organizations. However, substantive
matters concerning refugees may be handled
by another authority, for example the Presi-
dent or Prime Minister's office or the Ministry
of Interior. Guidance on the form of written
communications with the government is given
below.
2. It is important that the diplomatic corps
accredited to the country is kept informed of
UNHCR's activities from the start of an emer-
gency. An informed and concerned diplomatic
corps will be helpful in gaining support for the
emergency operation both from the host
country institutions and from donor govern-
ments for funding.
Briefing Meetings
3. Briefing meetings should start in the
early days of an emergency and continue on a
regular basis. There may already be a contact
group of the ambassadors most interested in
refugee matters who could be briefed in the
early days of an emergency. Where there is
no such group, or to make the arrangements
for meetings more formal, it may be appropri-
ate to invite the ambassadors of member
states of the Executive Committee of the High
Commissioner’s Programme (EXCOM) to the
briefings (for a list of EXCOM members, see
Annex 1).
4. A number of people may be helpful in
giving advice on the organization and partici-
pants of the meetings, including: the ambassa-
dor from the country of the current Executive
Committee Chairman may be helpful in advis-
ing on the organization of briefings, or the
Dean of the Diplomatic Corps, or the ambassa-
dor of the country currently holding the presi-
dency of the European Union (as a major
donor group), or the Organization of African
Unity or other regional groups.
5. A representative of the government
would normally be present at these briefings.
United Nations organizations and NGOs di-
rectly involved in the emergency operation
should also be invited to attend.
6. Unless chaired by the representative of
the Government, the meeting should normally
be chaired by UNHCR. Other agencies should
be encouraged to give account of their acti-
vities. Initially these meetings may need to be
held fortnightly or even weekly, but once a
month is a reasonable interval once the situa-
tion starts to come under control.
7. It may be useful to prepare for briefing
meetings by prior discussions with other par-
ticipating agencies to ensure that there is
agreement on the issues and on information
such as population figures.
8. If a question cannot be answered imme-
diately, arrangements to follow up on an indi-
vidual basis with the questioner should be
made.
9. These briefing meetings will be impor-
tant for fund-raising purposes. Representa-
tives of donor governments will form part of
the diplomatic corps and will therefore be
involved in the meetings. Additional smaller
briefing meetings may be appropriate, to deal
with particular concerns of a donor, or to
respond to a donor mission, or in respect of
major protection issues which might require
smaller, more discreet, briefings.
10. A useful complementary measure, which
might eventually substitute for the diplomatic
and other briefings, is a weekly or monthly
written report prepared by UNHCR. The stan-
dard internal emergency situation report, or
sitrep, could be used as the basis for this re-
port (the format for this is suggested in Annex
3 of chapter 8 on implementing arrange-
ments). If the sitrep is to be used in this way
the parts which must not be made public
should be clearly marked. Other United
Nations bodies directly involved should con-
tribute an account of their work. Such situa-
tion reports should be given wide distribution
in the operations area and to focal points at
Headquarters.
11. Implementation of these briefing arran-
gements will require valuable time and
effort. Clearly the priority is to deliver the
emergency assistance needed by refugees.
However, if those interested do not have
a regular source of information on the pro-
gress of the operation, UNHCR staff may end
up spending even more time on individual
briefings.
The aim is to keep Executive Committee
and other immediately concerned Govern-
ments well informed while not devoting
scarce time to a major protocol exercise.
84

Relations with the Media
Introduction
12. The media has traditionally been an ally
of UNHCR and other humanitarian agencies
working in difficult conditions. The media,
especially locally based correspondents, can
also be a useful source of information. There
may be considerable media interest in an
emergency and perceptions of how the inter-
national community in general, and UNHCR in
particular, is responding will be set in the early
days. This has important implications for sup-
port for UNHCR. It takes time to correct an un-
favourable first impression, and media inter-
est may have shifted elsewhere before this
happens.
13. Television, radio and newspapers oper-
ate on tight deadlines and need factual stories
on the emergency, with some background
information. Magazines and some radio and
television programs cover stories in depth and
have more time available for research and
subsequent re-checking. Television news chan-
nels (such as CNN, BBC World and Sky News),
and wire services (for example AFP, AP,
Reuters), produce bulletin-type news stories,
have very short deadlines, and are likely to be
the major source for world-wide coverage of
the emergency.
14. Given the logistical difficulties of some
emergencies, journalists are likely to approach
humanitarian agencies with requests for help
in moving around. Whenever possible, and
taking into account the operational priorities
and the sensitivity of some situations, journal-
ists, both national and international, should
be assisted in getting to the story.
General Guidelines for Relations with the
Media
15. The first decision to make concerns who
should handle relations with the media. The
media prefer information directly from those
responsible, which can be very time-consum-
ing. It is therefore recommended that a Public
Information Officer be a member of the
UNHCR field team from the start.
16. The Public Information Officer must have
full and immediate access to information con-
cerning developments in the operation and
UNHCR policies and reactions. He/she needs to
be updated by the most senior UNHCR Officer
in the operation as often as necessary, at least
once per day in a major emergency. The Public
Information Officer should then be responsi-
ble for all aspects of relations with the media.
Where there is no UNHCR Public Information
Officer, good contacts with the press officers
of other organizations will be helpful for gen-
eral advice, and for organizing joint news
conferences.
17. In emergencies the media will probably
go to the location of the refugees, often
unannounced, and expect a briefing from
UNHCR field officers on the spot. The briefing
given should be limited to facts and practical
intentions. See below for tips for interviews.
18. When intense press interest in a particu-
lar event can be predicted, there is much to
be said for preparing a short and simple
statement, distributing it to the enquirers, and
avoiding further comment. Close internal
coordination with field staff is essential, par-
ticularly if the interest relates to an event
occurring in a location where UNHCR has field
staff. Sending the statement to Headquarters
is essential as questions are likely to be raised
in Geneva.
19. Newspaper editors will generally print a
factual correction, and will often give space
in opinion or correspondence columns for
UNHCR to comment on errors of interpreta-
tion of UNHCR's role and policy. It is more
difficult to correct a factual error made on tele-
vision or radio. However, when trying to made
corrections, these should be corrections of fact
not interpretation.
Locally-based Media
20. The national media will be very impor-
tant in determining local attitudes to the
refugees, and may also give an early indica-
tion of sensitive issues and even government
policy. The government may be as concerned
by national coverage as by foreign coverage.
Local foreign-language newspapers may be
less important, except indirectly as a result of
their effect on the diplomatic community or
foreign press corps.
UNHCR should be careful to avoid public
polemical debate.
The best way to have positive media cover-
age and support is to run the most effective
emergency operation possible in the cir-
cumstances. Expertise in relations with the
media can never substitute for good per-
formance.
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85

21. Field offices should monitor the local me-
dia, including the radio and television, which
may play a much greater role in influencing
public opinion than newspapers. Good rela-
tions should be developed with local corre-
spondents covering the emergency. However,
exercise considerable discretion until there is
practical experience of the outcome of inter-
views. Language barriers are often a source of
misunderstanding, particularly on the tele-
phone and a locally recruited Public Informa-
tion Assistant can be very helpful in this regard.
22. It will probably be useful to make early
contact with the news editors of the main na-
tional (and any local foreign language) radio,
and television stations and newspapers to
explain UNHCR’s role. Stress that every priority
is being given to the needs of the emergency
and give a contact reference, should further
information be required.
Information Sharing with the Government
23. The government may be sensitive to
coverage of the refugees, and early contact
should be established with the official press
office or information service. General state-
ments or press releases should be shared with
the government information services and the
department handling refugees and UNHCR.
Statements relating to joint government-
UNHCR actions may have to be cleared with
the government first.
Field/Headquarters Information Sharing
24. A regular and swift exchange of infor-
mation is essential. Many questions on the
operation will be asked directly in Geneva and
New York. There is a UN press briefing in
Geneva every Tuesday and Friday morning,
where UNHCR participates, and a weekday
press briefing at noon in New York by the
spokesperson of the Secretary-General. In
addition, UNHCR calls special news confer-
ences whenever necessary.
25. The Public Information Section at Head-
quarters must have access to up-to-date infor-
mation. The Field should therefore:
❏ Keep media interest in mind when report-
ing to Headquarters (for example in
sitreps);
❏ Provide information (in sitreps or sepa-
rately) on matters likely to be of specific
press interest;
❏ Send reviews of local media coverage to
Headquarters.
26. In addition, if the Field has given an in-
terview with a major foreign newspaper or
network, or if a foreign correspondent has
been aggressive or appeared unsatisfied with
answers, the Public Information Section at
Headquarters should be forewarned.
27. Similarly, the Field must be kept regularly
informed by the Public Information Section at
Headquarters of international media cover-
age. Important international media reports
(including those based on briefings given in
the field) may not be available in the field.
Tips for Interviews
28. Reporters generally respect the ground
rules for an interview, provided these are
clearly established in advance. The inter-
viewer and interviewee should agree on type
of attribution and how the interviewee will
be quoted: for example: by name, "a UNHCR
spokesman", "UN sources", "humanitarian
worker", "sources in the international com-
munity", etc. An interview may need to mix
full attribution for the facts, and no attribu-
tion for information on political considera-
tions and constraints. Alternatively an inter-
view can be fully attributed and may often be
tape recorded. An interview can also be for
background information, and in this case
what is said by the interviewee is not attrib-
uted directly.
29. Radio and television interviews can pro-
vide good coverage for UNHCR's aims. They
are, by definition, for full attribution. If this is
not advisable because of particular sensitivities,
avoid such interviews. Bear in mind that inter-
views on radio and television can be edited.
30. In all interviews and comments to the
media, when in doubt err on the side of
discretion. Considerable experience and self-
discipline is needed to limit remarks to what
was previously planned. Having agreed to
give an interview or answer questions, show-
ing hostility or irritation will nearly always be
counter-productive, no matter how unreason-
able or loaded the questions are.
31. UNHCR’s work is difficult and mistakes
will inevitably be made, but do not try to hide
problems and difficulties.
Press who contact Headquarters before go-
ing to the field should be clearly briefed
that only limited attention and logistical
support can be devoted to them by the field
offices during the emergency phase.
86

Most journalists understand these problems
and respect efforts in what they know are very
difficult conditions. In fact, it is almost always
best to talk about problems before the media
find out about them on their own – and they
usually do. Finally, if mistakes are made, admit
them and try to learn from them.
32. When a complete answer to a question is
given and a silence ensues, leave it silent.
There is no law stating that one has to say
more than one wants or intends to say. It is
better to pause to construct a response than
to ramble. Do not suggest follow-up questions,
unless it is in order to disseminate important
information.
33. Do not ask for a story to be killed or sup-
pressed. Attempts at censorship will backfire
and are likely to generate two immediate con-
sequences; stepped up investigation of the
matter to be suppressed; and an unfavourable
story on the attempts to suppress it.
34. When in a press conference and espe-
cially with the electronic media, state the most
important point at the beginning. In subse-
quent answers and statements, refer again to
the most important point. When dealing with
radio and television, keep answers short; tele-
vision and radio put severe restrictions on how
much information can be used and long
drawn-out explanations and answers tend not
to be used and the main point not covered.
35. Give direct answers to direct questions. If
the facts are not known, say so, and offer to
get back to the reporter with the information.
36. Sensitive political or policy questions
should be referred to the main UNHCR field
office. Responses to general questions about
the situation should be made with UNHCR’s
mandate and goals in mind.
37. Take the initiative/control. Avoid answer-
ing speculative "what if" questions.
38. Key things to remember for all inter-
views are:
❏ BE YOURSELF. While journalists are always
on the lookout for a good story, they are
not out to make your life miserable. So re-
lax and be friendly. Look at the interviewer.
Avoid nervous gestures and mannerisms.
Keep your answers short and simple;
❏ BE POSITIVE. Do not criticize colleagues or
other UN organizations and NGOs. We are
all in the same boat;
❏ BE CONVERSATIONAL. When you talk to
journalists, keep it simple and clear. Do not
use the type of language found in many
UNHCR internal documents. In everyday
conversation, ordinary people don't use
terms like "modalities”, “durable solutions,"
"inter alia" "specific international protec-
tion mandate," "NGO," and "implement-
ing partner." Use examples that will make
the information comprehensible to your
audience;
❏ BE CONCISE. A 10-minute interview may
end up being seconds on the air, or three
lines in the newspaper. It is essential to crys-
tallize your thoughts in a few quotable sen-
tences;
❏ BE IDENTIFIABLE WITH UNHCR. If you are
being interviewed for television, or if a
photograph will accompany the report, try
to get a UNHCR logo in the background –
possibly a flag or on a vehicle, wear a
UNHCR T-shirt or cap.
Guidelines For Appearance On Television
39. Key things to remember for television in-
terviews are:
DO's
❏ Do make and maintain eye contact with
the questioner, not the camera. Do not let
your eyes wander;
❏ DO wear suitable subdued-coloured clo-
thes. Normal working clothes for field con-
ditions are fine – ties and suits are not ap-
propriate;
❏ DO check your appearance before going in
front of the camera, hair, buttons, zips?
❏ DO make short statements, each holding
up on its own;
❏ DO remember to make your most impor-
tant points as early as possible;
❏ DO, before you begin, discuss with the in-
terviewer what line the discussion will take;
❏ DO remember that the interviewer and au-
dience know less about your subject than
you do;
Be prepared to take the lead and direct the
interview into positive areas of information
about the operation.
Though it is important to be discreet, hon-
esty and clarity are the best policy.
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87

❏ DO remember that any programme is likely
to be edited before use.
DONT's
❏ DON'T smoke;
❏ DON'T wear sunglasses or jewellery;
❏ DON'T forget that the smallest mannerisms
show up more obviously on television;
❏ DON'T fidget or fiddle with pens, pencils,
lighters, etc.;
❏ DON'T say "I think" too often. it sounds as
though you are uncertain of your subject.
Talk about “we” or “UNHCR” instead.
Visibility of the Operation
40. In addition to working with the media to
ensure coverage of UNHCR operations, emer-
gency managers must pay attention to the
visibility of the operation.
41. Proper identification of staff, vehicles,
buildings and relief materials contributes to
improved dialogue with beneficiaries, local
authorities and partners.
42. Staff should be visible and identifiable as
UNHCR personnel. Visibility items for staff,
vehicles and buildings are available from
Headquarters (see Catalogue of Emergency
Response Resources, Appendix 1). A visible
UNHCR will help to show the beneficiaries and
the outside world that UNHCR is present,
active and delivering services to the refugees.
Funding and Donor Relations
Emergency Fund
43. The availability of funds is a prerequisite
for any UNHCR emergency action. The initial
funding in an emergency for project and oper-
ations delivery and administrative support
expenditure is likely to be allocated from
UNHCR’s Emergency Fund. Under the terms of
UNHCR’s Financial Rules, the Emergency Fund
is established to provide “financial assistance
to refugees and displaced persons in emer-
gency situations for which there is no provi-
sion in the programmes approved by the Exec-
utive Committee”, and to meet additional
administrative expenditures resulting from
those emergencies. The High Commissioner
may allocate from the Emergency Fund up to
US$25 million annually, provided that the
amount made available for any one single
emergency does not exceed US$8 million in
any one year and that the Fund shall be main-
tained at not less than US$8 million. Further
details are provided in Chapter 4 of the
UNHCR Manual and in Appendix 1, Catalogue
of Emergency Response Resources.
Central Emergency Revolving Fund
44. The Central Emergency Revolving Fund
of the UN Office for the Coordination of Hu-
manitarian Affairs was established to provide
funds within the UN system to respond rapidly
to emergencies. The fund has a target level of
US$50 million and is financed from voluntary
contributions. It is used for cash advances to
UN operational organizations and entities. In
principle these advances are to be reimbursed
as a first charge against income subsequently
received, usually as a result of consolidated
appeals. Further details are provided in the
Catalogue of Emergency Response Resources
(Appendix 1).
Using Existing Funds
45. If an emergency develops in an existing
operation, immediate funds may be available
from those already foreseen for that opera-
tion or, if appropriate, from the Programme
Reserve. Depending on the scale of further
needs, and also on the time of year when
the emergency occurs, further funding could
either be proposed to the Executive Commit-
tee as a new current year project or as a new
project for the coming year, or could be the
subject of a special appeal.
Communicating Needs to Donors
46. Operational needs, progress and con-
straints must be clearly communicated to
donors. A donor relations strategy should be
established in the first days of an emergency
and maintained for its duration.
47. Donor relations should be maintained
through:
i. Briefing meetings and regular contact at
field level between UNHCR staff and donor
representatives. Regular briefing meetings
(see paragraphs 3 to 11 above) with donors
should aim to keep them up to date on
actions being taken, protection issues, and
any constraints;
ii. Regular contact and follow-up at Head-
quarters level;
In conflict zones, visible markings can be an
important security measure for staff and
property.
88

iii. Involving donor representatives in missions
to see refugee sites and other points at
which assistance is delivered;
iv. Indirect communication of operational
needs through UNHCR visibility in the
media.
48. It is important to highlight UNHCR’s pro-
tection and coordinating role when communi-
cating with donors. Coordination must be a
reality on the ground with UNHCR taking, and
being seen to take, an appropriate leadership
role.
49.
There are no exceptions to this. This is neces-
sary to ensure funding is targeted where it is
most needed, to provide consistency in opera-
tional priorities and objectives, and in commu-
nicating these priorities to donors. Several
sections in UNHCR brief donors and it is impor-
tant for credibility that the briefings be simi-
lar. In case of doubts regarding what should
be presented to donors for funding, contact
the Donor Relations and Resource Mobiliza-
tion Service at Headquarters for advice.
50. Steer donors towards funding those
activities or areas of the operation that are
most in need of funding. When appropriate,
promote regional funding. Do not forget that
the emergency may have a regional dimen-
sion. Include this and other elements of the
UNHCR operation in the briefing and be
prepared to discuss funding for all aspects of
the operation with donors.
51. Contributions tightly earmarked to one
aspect of the operation impede flexibility.
Sometimes substantial contributions are strictly
earmarked and there is little scope for amend-
ing budgets once they are approved.
However, if donors do want to earmark a con-
tribution to a specific part of the operation,
advise them to check with the Donor Relations
and Resource Mobilization Service at Head-
quarters to ensure that this portion of the
operation has not been funded already, or of-
fered for funding, to another donor.
52. Particularly in emergencies, donors may
offer to supply commodities or services rather
than make a cash contribution. To a large
extent it will be up the Field to decide on
the suitability of such contributions. The
offer should be immediately reported to
the Donor Relations and Resource Mobiliza-
tion Service at Headquarters, and the donor
requested to follow up with Headquarters. In
kind contributions need to be coordinated by
Headquarters to avoid duplication of similar
contributions by different donors, and to
avoid confusion over the amount of cash
versus total contribution1
.
Preparation of an Emergency Appeal
53. The primary document for communicat-
ing with donors is the emergency appeal. It
is the appeal which needs to be brought to
the donors’ attention at briefings, and it is the
activities in the appeal against which progress
should be reported.
54. The emergency appeal is developed by
both the Field and Headquarters.
Headquarters is responsible for issuing the
appeal: it should have all the information
necessary from the Field as soon as possible to
enable it to approve budgets and to issue the
appeal at the earliest opportunity.
55. The government should be consulted in
the development of the appeal. The appeal
should also take into account the results of
the initial assessment, and the budget should
cover all foreseen expenditures.
56. If the situation changes dramatically
during the emergency, and the current ap-
peal becomes inappropriate, then the Field
should review operational objectives and
agree the new direction with Headquarters
before the revised operation is presented to
donors.
57. The appeal and the way the operation is
funded can be a potential source of confusion
when the government is UNHCR’s operational
partner. The total target can be misunder-
Information contained in the appeal about
operational needs to be generated at the
point of delivery – i.e. the field – so appeals
written primarily in the field are the most
effective in raising funds.
Donors should be encouraged to make un-
earmarked contributions whenever possible.
Only request funding for operations and
budgets which have been formally ap-
proved.
ExternalRelations9
89
1
Further information on contributions in kind can be
found in Procedures for Handling Contributions In Kind,
IOM/65/96 – FOM/74/96, UNHCR, November 1996. Bud-
getary procedures for dealing with contributions in kind
are discussed in chapter 8 on implementing arrangements.

stood as being entirely intended for expendi-
ture in the country, whereas the budget will,
of course, cover all UNHCR’s direct expendi-
ture, such as for any international procure-
ment and field and Headquarters operational
delivery and administrative support, including
protection. Clarity on this point from the start,
for example in any local press release or com-
ment, can avoid embarrassment later.
Communication Between the Field and
Headquarters
58. Headquarters and the Field need to
work together closely on funding and donor
relations issues. The focal point for this at
Headquarters is the Donor Relations and Re-
source Mobilization Service. The Private Sector
Fund Raising Unit at Headquarters may also is-
sue appeals to the general public or aimed at
individual or corporate donors.
59. Donor Relations and Resource Mobiliza-
tion Service at Headquarters should:
❏ Advise how to deal with a particular donor;
❏ Provide latest information on funding for
the operation;
❏ Follow up with donor capitals on potential
contributions discussed in the field;
❏ Produce and distribute appeals (with the
active participation of the Field);
❏ Prepare specific submissions to donor fund-
ing agencies (with the active participation
of the Field);
❏ Submit detailed reports to the donors.
60. The Field should:
❏ Produce the basic operation information
and information for the appeals;
❏ Inform Headquarters when a donor has
indicated an interest in contributing funds,
whether to the appeal, to a particular oper-
ation, to earmarked activities, or as a contri-
butions in kind, and should also ask the
donor to follow up through the normal
channels at Headquarters;
❏ Provide information to the donors about
the current situation and UNHCR’s plans.
When deciding on a contribution, donors
need relevant information. Some informa-
tion will be in the emergency appeal and
given at briefings, but some donors require
more detailed information. Timely and
detailed responses will ensure the most
rapid funding;
❏ Provide reports and information to Head-
quarters to assist it in submitting reports to
donors. To ensure continuity of funding it is
essential that the required information be
provided from the Field without delay.
Reporting to Donors and Special
Requirements
61. A variety of reports are required by
donors in order to account for their contribu-
tions and to release additional funds. Bear in
mind that donor reporting cycles do not
necessarily correspond to UNHCR’s reporting
and operation cycles.
62. Some major donors to UNHCR’s emer-
gency operation require particularly detailed
reporting at both financial and narrative level
in a unique format with strict deadlines. These
special reports are prepared by the Donor
Relations and Resource Mobilization Service at
Headquarters on the basis of information
from the Field. Some donors also monitor im-
plementation directly through their local rep-
resentatives.
63. A number of donors attach great im-
portance to the visibility of their financial
support, through the marking of assistance
material and other means.
Formal Written Communications
64. When establishing a new UNHCR pres-
ence in a country, there is likely to be a need
for a number of formal written communica-
tions to government or local authorities. The
purpose of this section is to give brief guid-
ance on the preparation of formal letters and
“notes verbales” (formal notes written in the
third person – see sample in Annex 2).
65. Formal letters are used for communica-
tions to ministers, ambassadors and senior
officials (for example, the Director-General
of a government department) on important
matters.
66. Note the following points for written
correspondence with ambassadors, ministers
and other dignitaries:
i. The proper opening salutation is: "Sir" or
"Madam", with "His/Her Excellency" used,
if appropriate, only in the address. How-
ever, it may be local practice to begin and
end with "Your Excellency". When in doubt
check with UNDP or use "Sir". His/Her Excel-
lency precedes all other titles and ranks
(e.g. Her Excellency Dr. X Y; His Excellency
General A B, Minister of the Interior);
90

ii. The expression "I have the honour ..." is
usually used only in the opening sentence;
iii. "You" can normally be used in the text.
However, in a long text it may be courte-
ous from time to time to interject the more
formal address (e.g. "I should be grateful if
you, Sir, [or Your Excellency] would confirm
that this is also the understanding of your
Government");
iv. Formal letters end with "Accept, Sir/Ma-
dam/Your Excellency, the assurances of my
highest consideration".
67. A note verbale is a formal note written
in the third person. Notes verbales may be
addressed to a Minister for Foreign Affairs or
a Ministry of Foreign Affairs, an ambassador
or an embassy. Notes verbales are always used
in replying to an incoming note verbale. It is
written from person to person (e.g. Represen-
tative to Minister) or office to office (e.g.
Branch Office to Ministry). The following
points should be noted:
i. Typical uses of notes verbales include the
exchange of information between UNHCR
and governments, embassies or permanent
missions. The note verbale is not normally
used to communicate with other United
Nations agencies and is never used to ad-
dress NGOs or the public. The note begins
either, "The Special Envoy/Representative
of the United Nations High Commissioner
for Refugees in (country) presents his/her
compliments to ... and has the honour to
..." or "the Branch Office of the United Na-
tions High Commissioner for Refugees in
(country) presents its compliments to ...
and has the honour to ...";
ii. Titles must be given in full, at least in the
opening and closing paragraphs. Be sure to
use the full correct designation of the
country (Kingdom of ..., Republic of ..., De-
mocratic Republic of..., etc.)2
;
iii. The complimentary closing of a note ver-
bale is always the same: "The (Representa-
tive/Special Envoy) of the United Nations
High Commissioner for Refugees in (coun-
try) avails him/herself of this opportunity to
express (renew) to ... the assurances of
his/her highest consideration", or, as ap-
propriate, "The Branch Office ..." etc.;
iv. The note should bear no signature. The Of-
fice stamp should be placed over the type-
written date and the officer responsible for
its dispatch should sign his/her initials
within the stamp. The Representative or
Special Envoy and an alternate may be re-
quired to register their initials or even sig-
natures with the protocol department of
the foreign ministry;
v. The place and date should appear on the
bottom right-hand side of the last page. The
address does not appear on a note verbale;
vi. The text of the note verbale should be sin-
gle spaced with double spacing between
paragraphs.
68. Both formal letters and notes verbales
may bear file references, as brief as possible,
on the top left of the first page.
69. Notes verbales are always answered
by notes verbales, and formal letters by
formal letters. Apart from the restrictions on
the use of notes verbales given above, there
are no completely clear-cut rules about which
to employ when UNHCR is initiating the com-
munication. In general terms, the note ver-
bale conveys brief information and is the
normal form for routine exchanges with
the protocol department, for example, when
seeking customs clearance for relief supplies
or advising of the arrival of international
staff. References to important meetings
with senior officials and major issues, particu-
larly those already discussed, are better
treated in a formal letter. A formal letter may
also reach the action officer more quickly
than a note.
70. If it is necessary to set out UNHCR's posi-
tion on a specific subject (policy, action taken,
intentions, etc.), this may be done in the form
of an aide-mémoire written in the third per-
son. An aide-mémoire has no addressee and is
simply headed Aide-Mémoire, with the title
below. A similar purpose is served by a "Note
by the Office of the United Nations High Com-
missioner for Refugees", a minor difference
being that this description goes below the
title. An aide-mémoire would normally be
used to convey information to a government
ministry or department, an embassy or the
diplomatic corps. For a less formal or wider
distribution, the "Note by ..." form may be
appropriate.
71. All four types of communication should
be presented on UNHCR letterhead stationery.
ExternalRelations9
91
2
The following document is a useful guide: Terminology,
Country Names, United Nations Bulletin No. 347 (ST/CS/
SER.F/347/Rev.1).

Algeria
Argentina
Australia
Austria
Bangladesh
Belgium
Brazil
Canada
China
Colombia
Democratic Republic
of the Congo
Denmark
Ethiopia
Finland
France
Germany
Greece
Holy See
Hungary
India
Iran (Islamic Republic of)
Ireland
Israel
Italy
Japan
Lebanon
Lesotho
Madagascar
Morocco
Namibia
Netherlands
Nicaragua
Nigeria
Norway
Pakistan
Philippines
Poland
Russian Federation
Somalia
South Africa
Spain
Sudan
Sweden
Switzerland
Thailand
Tunisia
Turkey
Uganda
United Kingdom
United Republic
of Tanzania
United States of America
Venezuela
Yugoslavia
92
Annex 1
MEMBER STATES OF THE EXECUTIVE COMMITTEE
OF THE HIGH COMMISSIONER’S PROGRAMME
As of November 1998

NATIONS UNIES UNITED NATIONS
HAUT COMMISSARIAT HIGH COMMISSIONER
POUR LES REFUGIES FOR REFUGEES
Note Verbale
The United Nations High Commissioner for Refugees (UNHCR) Branch Office for [Ruritania] presents
its compliments to the Ministry of Foreign Affairs of ________________________________ and has the
honour to request authorization to import [two Toyota land-cruisers]. It requests furthermore that
the usual advice be sent to the appropriate authorities for exemption of payment of import duty,
excise duty, registration and licensing fees for [these vehicles]. Details of (the vehicles) are as follows:
1. Bill of lading number: TAN-P-C 16-11/25-03
2. Engine numbers of vehicles: B-L-C 741-1334
B-L-C 24-04-01
The Office of the United Nations High Commissioner for Refugees avails itself of this opportunity to
renew to the Ministry of Foreign Affairs [of Ruritania] the assurances of its highest consideration.
(stamp)
[name of place of UNHCR office in Ruritania], [date]
ExternalRelations9
93
Annex 2 – Example of a Note Verbale

10
Community Services and Education
94

Overview
Organizing Community Services 5-15 97-98
Introduction
Assessment and Action Plan
Foundation of Community Services Programme
Building Community Services
Human Resources 16-23 98-100
Introduction
Working as a Team
Family Tracing and Reunification 24-26 100
Groups at Risk and Vulnerable Groups 27-72 100-106
Introduction
Children (including Adolescents)
Unaccompanied Minors
Women
Single Parent Households
Survivors of Violence
Disabled and Handicapped
Older Persons
Isolated Ethnic Minorities
Education 73-86 106-109
Introduction
Setting Up an Education Programme
Action
Key References 110
Annexes
Annex 1: Community Services Checklist 111-113
Annex 2: Sample Unaccompanied Minor Registration Form 114-115
Annex 3: List of Materials for Recreational and Other Activities 116
Annex 4: Writing Materials List 117
CommunityServices
andEducation
10
95

96
Situation
The trauma of becoming a refugee can be very great. Normal structures which have regulated
community well-being and also cared for groups at risk such as older persons, women, children
and the disabled, have broken down and need rebuilding. Social and psychological problems are
created or exacerbated and appropriate measures for resolving these problems are essential.
Objectives
To provide for the welfare of the whole refugee group and to ensure that the most vulnerable
refugees have equal access to basic goods and services.
To assist the re-establishment and development of refugee community structures which can be
used in the management of the assistance programme and which can also minimize longer-term
problems of dependency.
To ensure that the assistance provided is appropriate for the refugees.
q Refugee community participation (including both men and women) should be promoted in all
sectors, by building on the community’s own resources as much as possible and encouraging
individual, family and group self-reliance;
q Special services for the vulnerable should, as far as possible, be provided by the refugee com-
munity itself;
q Services should be decentralised but within a structured plan, and must reach those in need;
q Community services should be developed in co-ordination with and in support of the priority
life support sectors and should be an essential component of the overall assistance operation.
Action
q Assess community problems, needs and resources. Help refugees to identify and establish the
services which will meet their needs in all sectors;
q Ensure prompt identification of and support to the most vulnerable;
q Develop appropriate community management structures including mechanisms to ensure
participation of women in decision-making and ensure that all groups within the population
are appropriately represented. Identify community workers who can help the vulnerable,
spread relevant information and support other sectors;
q Take immediate action to prevent family break-up and reunite families as soon as possible.
q Identify and provide care for all isolated vulnerable individuals, especially unaccompanied
minors. Spontaneous groupings, if already bonded, should be kept together;
q Establish communication links with the refugees to ensure good two-way communication
between the refugees and those assisting them;
q Build the capacity of the community by identifying training needs and by helping to organize
practical and hands-on training in community work.

Introduction
1. The shock of having to leave home and
the circumstances of life as a refugee, particu-
larly in the early stages of an emergency, cre-
ate major emotional and social problems and
exacerbate existing problems in the commu-
nity. The trauma of flight and its aftermath
may leave the refugees confused, frightened,
lonely and insecure, facing an unknown
future in a strange, sometimes hostile, envi-
ronment. Separation from or loss of other
family members as well as lack of community
support are common in refugee emergencies,
and causes emotional stress and problems for
individuals and their community.
2. The most important action that can be
taken to help reduce the shock and stress for
the community is to provide security, stability
and protection. In part this can be done mate-
rially, and in part by ensuring protection and
involving the refuges from the start in the
organization of all aspects of their new lives,
and in particular the search for durable solu-
tions. Community services are a vital bridge
between the refugee and the goods and serv-
ices of the new settlement. Without help in
adjusting to this new environment, the sense
of loss and isolation can deepen even in cir-
cumstances of relative material well-being.
3. It is important to involve the refugees in
the provision of assistance and allow the com-
munity to share the responsibility of caring
for itself and its vulnerable members. This
minimizes dependency and encourages self-
reliance.
4. In every emergency, there will be refugee
groups at risk with psychological or social
problems that require particular attention. The
most vulnerable are those with no family sup-
port who are dependent on external assistance
for their daily survival. This dependence may
be because of their age; their physical condi-
tion; their psychological condition; or socio-
economic problems. The social disruption of
emergencies causes these problems to be both
aggravated and overlooked – but in stable
non-emergency situations, the community it-
self meets many of the needs of groups at risk.
Thus services to meet these needs are best
given in a community-based programme.
Organizing Community Services
x Plan and implement the community ser-
vices programme with the refugees;
x Use a phased approach to implement a
community services programme;
x Assess the needs by screening the whole
community; the most vulnerable rarely
come forward themselves;
x Co-ordinate closely with other sectors.
Introduction
5. The main objectives of community
services should be to identify and assist those
persons whose basic needs are not being
adequately met and to ensure the general
welfare of all refugees. A community services
programme should mobilize appropriate
community resources, with outside help as
necessary, to screen the refugee population
for those facing urgent problems and see
these immediate needs are met. Community
services can then proceed to strengthen self-
reliance and develop community activities.
6. A three-phased approach has been deve-
loped to implement the community services
programme:
Phase 1 assessment, action plan,
guidelines;
Phase 2 foundation of community
services programme;
Phase 3 building up community services.
To measure performance in each of these
phases (which are not mutually exclusive), a
community service checklist can be used (see
Annex 1).
7. Experience suggests that even in an
emergency many needs can best be met by re-
sources that exist within the community. Every
community has its own beliefs, social values,
customs, traditions and preferences for how
problems should be resolved.
Community problems are best solved using an
integrated, inter-disciplinary approach, work-
ing with other sectors. Community services
staff should therefore work as part of the
UNHCR team, contributing to assessment, plan-
ning, programming and monitoring activities
of other sectors.
A community services programme should
seek to enhance and improve existing and
positive coping mechanisms.
The approach used during the emergency
period will determine the whole pattern of
behavioural response of refugees towards
external assistance.
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8. Community services programmes gener-
ally require a decentralised structure, allowing
refugee community workers to work with the
same refugees, getting to know and be
known by them. An active community services
team is likely to be a major referral unit, help-
ing to direct refugees to available resources
and identifying areas of need where other
services (health, nutrition, etc.) may be tar-
geted.
Assessment and Action Plan
9. A careful initial assessment will deter-
mine the most pressing social problems, and
the plan of action. This assessment should
cover the whole community, with particular
attention to identifying refugees with special
needs who may not come forward themselves.
The assessment and resulting plan should take
into account demographic and cultural infor-
mation regarding the refugee population, as
well as the policies and resources in the coun-
try of asylum. Another priority in drawing up
the community services programme is to iden-
tify gaps in the general assistance programme.
10. The outcome of the assessment will de-
termine the community services action plan,
including priorities of actions to be taken, the
role of the various partners, and the need for
special programmes, such as family reunifica-
tion or assistance to victims of violence (see
key references for guidelines on these topics).
11. Before establishing the community ser-
vices team (see the section on Human Re-
sources below), it will be necessary to identify
appropriate local, national and international
partners, including NGOs, governments, local
and refugee community leaders. Involving
local communities and government will help
raise refugees’ sensitivity to the needs and
culture of the local population, and will also
facilitate local acceptance of refugees, thus
preventing tension.
Foundation of Community Services
Programme
12. It is important to identify and promote
refugee self-management groups either with-
in mainstream structures or if more culturally
appropriate, in separate groups. These should
include women and youth. Community sup-
port for the vulnerable must be encouraged.
Refugee volunteers can help identify vulnera-
ble refugees and ensure their access to gen-
eral services.
13. To ensure that all refugees, especially the
most vulnerable, have access to services:
i. Direct all refugees to appropriate health or
nutrition services;
ii. Organize immediate tracing of lost chil-
dren and registration of these and other
vulnerable individuals and provide assis-
tance to all those alone and unable to care
for themselves;
iii. Address the problems of survivors of abuse
or violence.
14. In order to minimize long term depend-
ency, and ensure the services are appropriate
for the whole refugee group, community
services will promote refugee participation in
all sectors, and build the refugee community’s
problem solving capacity. Community services
should also raise awareness and mobilize
refugees on sanitation and environment issues
and respect for local community resources.
Building up Community Services
15. Once the community services pro-
gramme has been established, community
services are built up by: building the capacity
of implementing partners; co-ordinating com-
munity outreach and community training
activities; establishing information networks;
running a training programme for community
workers; setting up education programmes
and running the tracing and special pro-
grammes. General community activities, for
example, cultural events and recreation, will
be important for the creation of a greater
sense of normality and security, and the reduc-
tion of stress, as well as fostering the refugees’
sense of community.
Human Resources
x The refugees themselves should play the
central role;
x Continuity of personnel is very important;
x Professional impartial conduct and confi-
dentiality must be maintained;
x Teamwork with other sectors is essential.
Introduction
16. Refugees trained as community workers
should be the backbone of the community
services programme. Outsiders will be severely
limited by language barriers and lack of
familiarity with social values and customs.
Refugee community workers will be respon-
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sible for assisting groups and individuals
through outreach work, and referring indi-
viduals to appropriate services where neces-
sary. In some cultures, traditional healers are
especially skilled at resolving psychological
problems.
17. Training refugee community workers is a
priority. Training should draw on refugees’
own knowledge of their community, and
make use of outside expertise (from within
the host country if possible). Training should
cover social work and community develop-
ment, with inputs from other disciplines such
as public health, nutrition, sanitation, protec-
tion, water, shelter.
18. Refugee community workers should be
drawn from the various groups within the
refugees, and a particular effort may be
needed to ensure that a sufficient number are
women. There should be a proper balance be-
tween workers from different social and eth-
nic groups.
19. The number of such workers required
will depend greatly on the community’s own
response mechanisms, and the geographical
distance between site locations, population
size and complexities of the situation. How-
ever, one worker per 1,000 refugees is usually
appropriate. In addition, there should be com-
munity workers in the health centres, as there
is a tendency for people with special needs to
be directed to these even when the problem
may not be medical.
20. Staff from outside the refugee commu-
nity will be required to co-ordinate community
services, manage training programmes and
deal with problems beyond the resources of
the refugees. This outside assistance is likely to
involve both international and national per-
sonnel. The role of international personnel
may be limited principally to overall co-ordina-
tion, guidance, support, training and liaison
with the authorities and other organizations
concerned.
21. National personnel will play an impor-
tant role because of their cultural knowledge
and understanding of the refugees. Addi-
tional specialist staff may be needed to focus
on specific issues. A memorandum of under-
standing exists between UNHCR and Radda
Barnen (Sweden) under which specialized
community services staff can be quickly de-
ployed to emergencies (see Appendix 1, Cata-
logue of Emergency Response Resources, for
details).
22. Interpreters are a vital link of communi-
cation between UNHCR and the refugee com-
munity as they bridge the gap created by
cultural, national, linguistic and racial differ-
ences. Interpreters are usually selected from
the refugee or local community and should in-
clude an adequate proportion of women.
Refugee interpreters have the benefit of
knowing and being committed to helping
their community; however they are likely to
be placed in a difficult position as intermedi-
ary between refugees and UNHCR and ex-
pected to be answerable to both. Therefore, if
possible, refugee interpreters should not be
used in sensitive situations such as status de-
termination interviews.
Working as a Team
23. Community services should support, and
have strong links with, other sectors. For ex-
ample:
Protection: Community services and protec-
tion have complementary roles in dealing
with refugee problems on a day-to-day basis
and working with refugee groups at risk.
There will be areas of overlapping concern,
for example, in training, promotional and
advocacy activities at the community level;
programmes for unaccompanied minors such
as tracing, family reunification and foster care;
and in developing preventive mechanisms
and community-based solutions to deal with
harassment of minority groups and sexual
violence;
Health services: Many problems have both a
medical and social component. Refugees
might not make use of health services because
they are too weak or infirm, too traumatized
or just unfamiliar with the health service.
Women may be particularly constrained if
there are insufficient female health staff. On
the other hand, problems of all kinds may be
referred to health centres – so community out-
reach workers should be located in the health
centre. Community networks can be used to
promote basic health messages in cleanliness,
sanitation, breast feeding etc.;
Continuity of personnel is necessary for ef-
fective community services because of the
fundamental part played in these services
by human contact and trust.
Familiarity with social values and customs is
essential.
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Site planning and construction: Community
services can assist in the identification of social
and cultural determinants of shelter planning,
promote the involvement of all the commu-
nity, including women, help establish refugee
committees to oversee construction, and en-
sure that the community will take responsibil-
ity for providing shelter for its more
vulnerable members in locations where they
can be protected and assisted;
Environment: Community services should con-
vey environmental messages such as the need
to preserve trees and vegetation during emer-
gencies (see chapter 12 on site planning).
Community services should also promote sim-
ple, but crucial, energy saving techniques such
as covering pots with lids during cooking,
drying, chopping and splitting firewood
before burning, and soaking beans and grains
to reduce cooking time. Community services
staff should work closely with environment
specialists in areas such as forestry and do-
mestic energy, to ensure these activities take
into account the concerns and priorities of
the local and refugee community. Without
community participation, environmental pro-
grammes might not achieve their objectives;
Logistics: Community services should also
work with logistics officers to ensure that vul-
nerable groups and groups at risk have equi-
table access to all commodities.
Family Tracing and Reunification
x Tracing and reunion of separated family
members must be organized as quickly as
possible;
x Refugees must be able to send and receive
mail.
24. Procedures for the reunion of refugee
family members separated during flight or
within the country of asylum should be
agreed with the authorities and imple-
mented as soon as practicable. Tracing pro-
grammes should be set up and co-ordinated
in the country of asylum, country of origin
and regionally. At camp or local level, simple
and effective tracing mechanisms include
posting lists of names with photographs on
the community notice boards in different
locations, using the radio, or even making
announcements by megaphone. The tracing
arrangements must be widely promulgated;
a central contact point in each site is likely to
be needed. Tracing is a delicate task, and has
to be organized by people who have the nec-
essary experience and skills. A suitably experi-
enced agency may be needed to implement
these activities. Tracing requires the involve-
ment of the refugees themselves, who will
play a key role. The local population and au-
thorities can also play an important role.
Confidentiality of information and protec-
tion of individuals is also essential.
25. Consider the causes of separation when
establishing tracing systems. Separation may
have been caused by large scale population
movements but may also have been due to
other factors such as children opting to leave
their families, or placement of persons outside
their family for survival purposes. Outsiders,
often relief workers, may have removed a
child from an apparently dangerous situation,
without informing the family and without
proper documentation.
26. The following actions should be taken:
❏ Organize tracing and reunion of separated
family members as quickly as possible, giv-
ing first priority to unaccompanied minors
and other extremely vulnerable individuals;
❏ Combine a variety of systems: on the spot
tracing, use of community mechanisms and
formalized tracing at a regional level;
❏ Coordinate activities with agencies having
expertise, e.g. the ICRC. Note that ICRC pro-
cedures, using the national Red Cross or Red
Crescent societies, can be lengthy but may
be the most appropriate for difficult cases;
❏ Ensure regional standardization of registra-
tion systems;
❏ Set-up a communication network in the
community including a mailing system. A
properly organized exchange of news (Red
Cross messages) may considerably diminish
the workload of a tracing service and accel-
erate the reunion of family members.
Refugees have the right to send and re-
ceive mail.
Groups At Risk And Vulnerable
Groups
x Develop and strengthen community-based
support for vulnerable groups wherever
possible;
x Ensure that children are cared for in ways
that meet both their physical and emo-
tional needs; individual care of unaccom-
panied children is all-important;
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x Ensure that all groups among the refugees
can participate in decision making affecting
their well-being.
Introduction
27. In dealing with vulnerable groups, com-
munity based support is preferred, and only as
a last resort should small, special facilities be
established. These should be short-term to
shelter vulnerable individuals while identify-
ing community support mechanisms.
28. Experience shows that in refugee emer-
gencies certain groups are likely to be more at
risk than others. Standard criteria for vulnera-
bility, and for eligibility for the provision of
special assistance should be developed in con-
junction with refugees. Some groups may be
excluded from decisions directly affecting
their wellbeing, and the particular needs of
these groups may be unintentionally ignored
or excluded in programme development. This
exclusion may result in making the group
vulnerable. This is often the case with minority
groups. Women, who often make up the
majority of the population, can be excluded in
much the same manner.
29. In emergencies vulnerable refugees may
need special transport where the refugee has
physical problems which would prevent long
distance movement. This would include older
persons, the disabled, women in late preg-
nancy, severely malnourished or those in se-
vere psychological distress. If special transport
is needed, the refugee should be accompa-
nied by a responsible attendant (usually a
relative) and a clear reunion point identified
to prevent further vulnerability through sepa-
ration.
30. When individual casework is necessary,
up-to-date records and confidential individual
dossiers should be kept, and a simple periodic
reporting system instituted, focusing on the
needs identified and services provided rather
than giving just statistical data. It is important
that case records are transferred with
refugees when they are moved. A coordi-
nated response avoids unnecessary repetition
of basic interviewing which is not only a
waste of time but can also be psychologically
damaging.
Children (including Adolescents)
31. For the purposes of this Handbook, “chil-
dren” should be understood to mean “per-
sons below the age of 18 years” (as defined in
the Convention on the Rights of the Child,
1989), and therefore includes young children
and adolescents.
32. Children make up a large proportion of
most refugee populations. Early interventions
during emergencies will help to normalize and
stabilize their situation. Specialized agency ex-
pertise may be needed for parts of a child-fo-
cused programme.
33. Birth registration may be a prerequisite
for obtaining nationality, enrolling in school
and may be a vital tool for tracing. It can also
be important in preventing military recruit-
ment and other forms of exploitation. Ensure
that the births of all refugee children are reg-
istered. Ideally births should be registered
through the same procedure applicable to
nationals. Where this is not possible the au-
thorities should be encouraged to establish a
separate birth registration system for refugee
births. If this is not possible either, organize a
temporary attestation system to ensure, at a
minimum, that the date, place of birth and
the names and nationalities of both parents
are recorded. The UNHCR Field Office or the
Red Cross/Red Crescent could, for example,
issue such an attestation.
34. Different age groups will have different
problems, young children have very different
needs from teenagers.
35. UNHCR has an MOU with UNICEF which
outlines their respective responsibilities for
children and unaccompanied minors – UNICEF
takes the lead in countries of origin and
UNHCR in countries of asylum (see MOU at-
tached as Appendix two).
36. Take the following action:
❏ Identify and develop community-based
mechanisms to monitor refugee childrens’
assistance and protection needs;
❏ Identify whether the child population as a
whole might have any specific characteris-
tics or needs as a consequence of the
trauma of their flight and life before find-
ing asylum: in particular, where children
have been victims of and/or participants in
armed conflict, or might have particular
psychological, physical or social problems as
a consequence;
❏ Identify what current risks there may be to
the child population: for example a risk of
on-going military recruitment, or of sexual
exploitation or abuse;
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❏ Promote the social role of adolescents in
the community and their responsibility to-
wards others in need, for example they can
serve as community workers. Adolescents
will need support, especially if they have as-
sumed adult roles as heads-of-households.
They will also need access to and education
about reproductive health services, and vo-
cational training;
❏ Coordinate with the health and nutrition
sectors in organizing education campaigns
and outreach activities in community health,
nutrition and sanitation, such as promoting
breast feeding, immunization and feeding
programmes;
❏ Organize play groups, recreation activities
and emergency education for pre-schoolers
and for school age children including girls
and vulnerable children;
❏ Identify resources within and outside the
community which could be used to address
the needs of children and young people
(and their families). These community re-
sources should encourage self-reliance, and
work towards preventing domestic violence,
sexual abuse, drug and alcohol abuse and
involvement in military activities;
❏ Integrate the needs of children in all pro-
gramming activities.
Unaccompanied Minors
37. UNHCR defines an unaccompanied minor
as one who is below 18 years of age who has
been separated from both parents and for
whose care no person can be found who by
law or custom has primary responsibility. Note
that other organizations may have other defi-
nitions of unaccompanied minors. In addition,
note that unaccompanied minors are some-
times also called separated minors.
38. Labelling children as orphans tends to en-
courage adoptions, (and in some cases, there
may be enormous external pressure for or-
phanages and/or third country adoption)
rather than focusing on family tracing, foster
placements and increasing community support.
39. Although the government of the country
of asylum should take legal responsibility for
these minors, with UNHCR offering advice and
assistance, in practice if government resources
are thinly stretched, UNHCR may take a more
pro-active role.
Prevention of Separation
40. Family unity must be preserved as much
as possible – take no action that may prevent
family reunion. The failure to protect family
unity not only results in avoidable physical and
emotional suffering, but subsequent efforts to
reunite families are costly and difficult, and
delays in family reunification will impede
durable solutions. Although children are often
separated from their families while their fami-
lies are in flight, steps can be taken to mini-
mize further separations, and to maximize the
chances of timely and successful reunion.
41. There is sometimes pressure to rescue
minors from dangerous situations but some
child-only evacuations have caused years of
separation and in some cases the breaks have
been permanent. The physical dangers may be
over estimated, while the children’s psycho-
logical need to be with their parents may be
under appreciated.
42. If an evacuation is essential, the follow-
ing safeguards should be observed. Minors
should be accompanied by an adult relative,
and if this is not possible, by a qualified care-
giver known to the children, such as their
teachers. The minors’ identities must be fully
documented before departure. Whenever
possible, documentation should travel with
the minors, and caregivers should be waiting
at the destination. The evacuation must be co-
ordinated with the designated lead agency. If
the minors are moved across an international
border, written agreements with the govern-
ment should be secured in advance in order to
ensure family visits and reunions are possible.
43. Continuity of existing care arrangements
will help avoid further disruption and may fa-
cilitate reunion. Siblings should be kept to-
gether, as should unrelated children who have
been living together and give each other emo-
tional support.
There should be no evacuations separating
children from their parents or others recog-
nized as primary caretakers (custody) unless
essential to protect life.
Steps to prevent separation include support-
ing households at risk, and ensuring care
provided to unaccompanied minors does not
become an incentive for parents to abandon
their children to institutionalized care.
The description “unaccompanied minors”,
or “separated minors”, should always be
used in place of “orphans”.
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Assessment, Identification, Registration and
Tracing
44. Make a rapid assessment of the situation
of unaccompanied minors among the refugee
population. The first source of information for
identifying unaccompanied minors will be the
refugees themselves and the community lea-
ders. A general registration or census of refu-
gees may provide a suitable occasion for initial
identification without raising expectations be-
fore seeking more detailed information.
45. A general registration or census will also
identify those children not alone, but not with
their immediate family, and who thus require
tracing. Give priority to identifying children
under five years, girls who may be subject to
sexual abuse and boys who may be recruited
into military service.
46. Once identified, unaccompanied minors
should be individually registered as soon as
possible (see Annex 2, unaccompanied minor
registration form).
The Emergency Kit for Unaccompanied Chil-
dren provides guidance and tools for identi-
fication, registration, and tracing. This can be
ordered from Headquarters and contains a
priority actions handbook, emergency regis-
tration books, cameras, equipment and basic
supplies.
47. Ensure that children are issued with sep-
arate registration documents and ration cards
and that these documents (including a recent
photograph), always travel with the child.
These measures will avoid confusion if a fos-
tering arrangement breaks down.
48. Unaccompanied minors should be indi-
vidually assessed and medically screened. A
sympathetic and imaginative approach to in-
terviewing children is very important and best
conducted by carefully trained refugees, if
possible by someone the child already knows
and trusts. If an interview has to take place
through an interpreter, the interpreter must
be well briefed, with his or her role limited to
direct translation, and must not be allowed to
break personal contact between interviewer
and child. Children may react very differently,
depending, for example, on the degree of
their trauma, fear and shyness. The presence
of the child’s friend(s) at the interview can not
only reassure the child but may also yield
important information. Any accompanying
adults or persons who brought the child for-
ward should also be interviewed.
49. As soon as unaccompanied minors are
identified, start to trace their parents or fami-
lies. Family tracing is not considered ex-
hausted before a two year investigation has
been completed. All claims for reunification
must be verified, as mistakes and false claims
sometimes occur.
Care and Protection of Unaccompanied
Minors
50. Children separated from their immediate
next-of-kin during a refugee emergency are
often cared for by the refugee community,
frequently within an extended family.
Whenever possible, children should be placed
with families, as institutional placements can-
not provide adequately for children’s develop-
mental needs and social and cultural integra-
tion into society. Ideally, they should be cared
for by relatives or others from the same ethnic
or cultural groups.
51. One of the most important principles in
the care of any child is that relationships must
be stable, because of the importance of the
emotional bond developed with the care-
giver. An unaccompanied minor must be placed
in a family where bonding can continue until
the parent(s) or recognized first caretaker(s)
are found. The child will then need time to
reestablish a bond with his or her parent(s) or
original caretaker(s). A period of overlap with
the two families may therefore be necessary,
in order to permit the re-establishment of the
relationship with the parents while avoiding
an abrupt severance of the ties with the foster
family. Where years have elapsed, the child’s
interests may be better served by remaining
with the foster family. UNHCR’s usual practice
is to allow unaccompanied minors over 15
to take decisions concerning durable solutions
for themselves.
52. Criteria for foster family care should be
worked out together with the community.
Foster care arrangements should be formal-
ized as quickly as possible by signed contracts
or agreements, with an understanding that
children should be returned to their immedi-
ate family if located. Particularly needy host
It is only where children cannot be cared for
by the community that special measures
will be required for their care.
Registration should not raise expectations
for special status and advantage.
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families may be provided with an incentive to
support the child on a case by case basis, but
not as a systematic measure for all foster fami-
lies. Food rations and other normal assistance
should of course, continue to be provided for
the child through the foster family. However,
the child should continue to have registration
and ration documents separate from those of
the foster family. Foster care arrangements
should be monitored closely through outreach
activities in the community. Careful account
should be taken of cultural attitudes towards
fostering. For instance, in some situations, a
family may find it hard to conceive of taking
in a child except as a servant.
53. Where child care centres are necessary,
they should be small, decentralized within the
community, and integrated into community
activities.
54. The advantage of small residential cen-
tres is that if reunification with the parents is
expected to take place quickly, such centres
provide an efficient way of caring for the chil-
dren while at the same time not losing sight
of them during the upheaval and confusion at
the start of an emergency.
55. Ensure continuity and stability in care (fos-
ter families and other) by employing refugee
and national community services staff who are
less likely to move on than international staff.
56. Provide supervision, support and training
to child care workers, including child inter-
viewing techniques, child development, com-
munity mobilization and child trauma. Train
refugees and aid workers to identify and reg-
ister unaccompanied minors from the outset
of an emergency.
Women
57. While it is not correct to see women as a
vulnerable group, women do have specific
needs which, if not met, can put them at risk,
such as vulnerability to exploitation and sex-
ual abuse, sexual discrimination and restricted
access to basic services. In addition, many deci-
sions in camp management which affect
women are made without them being con-
sulted. Not including refugee women in deci-
sion making about camp management may
put them at risk and add to their workload. In
addition, the effectiveness of the assistance
programme may be reduced because the
problems and needs of all the beneficiaries
have not been properly identified.
58. However, when seeking women’s partici-
pation in decision-making, it is also wise to re-
member that measures which challenge the
status quo may be threatening to traditional
leaders. Special efforts may be needed to
overcome resistance to change.
To Ensure Women’s Participation:
❏ Include refugee women in leadership func-
tions and give them responsible roles in the
community including participation in deci-
sion-making bodies;
❏ Ensure that women have equal access to
services and facilities, particularly health
and reproductive health care services, and
inform persons concerned about these re-
sources;
❏ Encourage activities such as adult literacy
classes which will help empower women
and bring them together for mutual sup-
port;
❏ Provide community support to women by
organizing recreational and educational ac-
tivities for children;
❏ Develop preventive protection mechanisms
with the community to ensure protection
of women against all forms of abuse;
❏ Work with the elders and other influential
groups to gain their support for the partici-
pation of women in camp management.
Single Parent Households
59. In refugee emergencies, the majority of
single parent households are female-headed.
However, community services must be sensi-
tive to the needs of both male and female sin-
gle parents. Men may have to be supported in
the functions of rearing children and organiz-
ing household responsibilities. Women who
Culture and tradition cannot be used as rea-
sons to exclude refugee women from par-
ticipation in decision-making.
Unaccompanied minors should be inte-
grated into the life, activities and services
available to other children. Avoid either
marginalizing them or paying them special
attention.
Remember that when the facilities and
services provided for unaccompanied chil-
dren are significantly better than those oth-
erwise available, parents may actually place
children in special care.
104

have to manage the family needs on their
own are at risk as they are vulnerable to ex-
ploitation and harassment, especially if they
are young. They may be exposed to pressures
attached to provision of food and material re-
sources. Women must therefore be included in
food management and other committees.
Some women may have to resort to prostitu-
tion in order to provide for their families, par-
ticularly if they do not have any skills to earn a
livelihood.
Survivors of Violence
60. Men, women and children can be victims
of violence in conflict situations (including tor-
ture, rape or solitary confinement) and suffer
consequent trauma. Rape is a crime of vio-
lence, and is sometimes used as a systematic
method of intimidation. Survivors of rape can
be any age from the very young to the very
old and belong to any social group. It should
be remembered that survivors of sexual vio-
lence including rape can be men as well as
women. It is important to recognize that the
consequences of sexual violence on children
and adolescents will differ from that on
adults.
61. Where there is a high risk of violence,
steps can be taken to reduce exposure and
vulnerability. Crimes of sexual violence may be
more likely to occur where women and/or chil-
dren are exposed and vulnerable, such as
when they collect firewood or water from
distant points. The level of risk of violence in-
cluding sexual violence from within or outside
the community, should be reflected in taking
increased precautions in camp security, and in
creating mechanisms to allow people to travel
outside the camp in safety e.g. fuel-wood
gathering in groups.
Take the Following Action
❏ Establish services for survivors of violence
which are integrated into other community
and health care services;
❏ Ensure confidentiality is maintained;
❏ Organize counselling support services using
trusted, supportive refugee staff, including
female staff;
❏ Organize support groups with people who
are trusted;
❏ Provide a safe place for survivors to stay,
with friends if possible;
❏ Ensure appropriate legal and medical serv-
ices are established and accessible, includ-
ing access to female staff;
❏ Mobilize community support by discussing
the general problem with them to ensure
more compassionate treatment. Religious
heads and community leaders in particular
can influence attitudes to survivors of vio-
lence;
❏ Ensure that site layout, fencing and lighting
promote physical safety. Good site plan-
ning, including location of services, will help
create conditions where violence will be less
likely (see chapter 12 on site planning).
❏ Sensitize the community to the problem
and the seriousness of domestic violence.
An emergency situation often triggers an
increase in levels of domestic violence, par-
ticularly in the early stages. However, in the
later stages of an emergency incidents of
domestic violence may remain high and on
occasion escalate, if the situation generates
high levels of stress.
62. Urgent medical treatment must be pro-
vided to any person who has been raped to
help deal with the physical trauma. A protocol
for management of such persons, based on
host country laws, should be adopted.
63. Post trauma reactions to sexual violence
include feelings of shame and guilt, anger,
humiliation, nightmares, withdrawal, depres-
sion and suicidal tendencies. Family, friends
and community support groups must be aler-
ted to these possible reactions so that they can
understand and assist the survivors of violence.
64. Social attitudes to rape are usually very
judgmental. A woman who becomes preg-
nant by rape may need help in being accepted
by her family and the community or in placing
a child for adoption. In some cases a man or a
woman who has been raped may have to
leave their present location in order to lead a
normal life. This is especially the case of a
woman with a child, who may then be left
without family support. Additionally, she may
feel hostile towards the child, a common post
trauma reaction.
65. Any documentation of a case should
be undertaken with the utmost confidential-
ity. It is the survivors choice whether or not to
take legal action; there may be very strong
considerations not to do so. If legal action
is taken, the survivor will need support and
protection in every step of what is a painful
process, and should be made aware of ex-
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actly what degree of protection and care will
be available.
66. Community services, protection and
health staff must work together for survivors
of rape and sexual violence. Protection staff
can provide information on legal action and
monitor the legal process if charges are
pressed. Health personnel should make neces-
sary treatment facilities and documentation
available. Community services should work di-
rectly with the survivor concerned, and with
the family of the survivor, as well as establish
support groups and more generally sensitize
refugees to the problems of rape. A refugee
team, which could complement the UNHCR
community services team, may be established
to provide outreach to women reluctant to
come forward.
Disabled and Handicapped
67. Disabled and handicapped persons
might have problems in accessing goods and
services available to refugees and steps must
be taken to ensure this access, including that
of disabled children to whatever schooling is
available. In some refugee situations, but
more often in returnee situations, additional
dangers of land-mines mean that an informa-
tion campaign must be started immediately to
prevent further disability. Initial care for the
disabled should be through families and the
community, nevertheless, rehabilitation ser-
vices (e.g. wheelchairs, crutches) should also
be introduced as soon as possible. Community
based rehabilitation to care for disabled
people is an approach that should be promo-
ted from the outset of an emergency.
Older Persons
68. The presence of older people in the
community can strengthen the bonds and
the sense of belonging. However, physical de-
terioration may limit their mobility and hence
their access to basic services. Those most
at risk are living alone or caring for young
children.
69. Consideration should be given to include
older persons in the supplementary feeding
programmes. Even if older people can obtain
food rations, limited mobility may preclude
collection of water or fuel essential for food
preparation.
70. For the more frail elderly, family and com-
munity care should be encouraged. Refugee
community workers should identify neigh-
bours, relatives or others who can help these
people with food, water or fuel collection.
71. It should be kept in mind that after any
repatriation, the elderly may make up a high
proportion of refugees remaining behind in
the country of asylum. Hence local govern-
ment structures and local NGO capacity should
be strengthened to care for them.
Isolated Social Groups
72. Every society has its social, religious,
political or ethnic groups whose access to
services is restricted even under normal condi-
tions. They become particularly vulnerable dur-
ing emergencies as assistance is likely to be
channelled through the leaders of the majority
groups. Immediate assessment should be made
of any of these groups to determine if they can
be integrated into the refugee community, or
whether special provision must be made.
In the early stages of an emergency, cultural
and traditional customs that may be harmful
to particular groups of refugees such as geni-
tal mutilation, early marriages and other abu-
sive practices should be addressed and appro-
priate action taken.
Education
x Education programmes can help address
not only the psychological and social needs
of the children, but also the well being of
the whole community, by helping to organ-
ize the population and by providing struc-
ture for the children and their families;
x Education programmes can provide impor-
tant support to lifesaving activities;
x Every child has the right to education. Even
in an emergency, start providing appropri-
ate education as soon as possible;
x The priority is to make primary schooling
available to all. Special efforts will probably
be necessary to ensure the proper participa-
tion of girls in the programme;
x Refugee schools should be organized and
run by the refugees themselves, to the ex-
tent possible, with proper outside support.
Introduction
73. Establishing an education system is im-
portant for the well-being of the whole
refugee community, as well as for the social
Older persons can constitute a significant
proportion of the refugee population though
they are often overlooked.
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107
and psychological well-being of children and
young people. Setting up basic schools will
give a structure and sense of normality to
a dislocated and traumatized community.
Refugees are dislocated not only from their
homes and families but also from their com-
munity – the old community is disrupted while
new community structures are only gradually
evolving. Schools can be the initial community
focal points, and a sense of well-being may be
created if the new community is partly struc-
tured around institutions which are as familiar
as schools, rather than around, for example,
distribution points, registration and health
centres which may be more representative of
the problems of their current situation.
74. In addition, schools can be initiated and
managed by the community itself much more
easily than other refugee institutions, again en-
hancing self-esteem and self-reliance. Refugee
teachers and parents often establish informal
schools even in an emergency - as soon as basic
needs in food water and health are met, be-
cause they recognize the importance of a
school system for the reasons set out above.
75. In addition to community building, other
important functions of the education system
in an emergency are:
i. To disseminate survival and life skills mes-
sages. Simple messages can be spread
through the school system, on issues such
as health, sanitation, nutrition, and look-
ing after the local resources (fuelwood for
cooking) so they do not become too rap-
idly depleted;
ii. To provide parents with extra time to work
on family survival needs;
iii. To serve as an important protection tool in
certain circumstances, e.g. through provid-
ing an alternative to military recruitment;
iv. To provide continuity of education which
can help reintegration in the country of
origin.
76. Detailed information on planning educa-
tion programmes and on standards for refu-
gee schools is set out in the latest edition of
UNHCR’s Education Guidelines. These guide-
lines are essential reading for those establish-
ing an education programme.
Setting up an Education Programme
77. Basic education must be provided and,
although priorities in the emergency phase
may mean that the full implementation of an
education programme is difficult, a start must
be made. An education programme should
only be delayed if the emergency is clearly go-
ing to be short-lived.
78. Identify teachers from the refugee popu-
lation who can organize recreational and edu-
cational activities, and identify agencies to
support the development of basic education
programmes.
Simple Activities
79. In the beginning, the aim is to establish a
simple programme of structured recreational
and simple educational activities for children
and young people. This is possible even with
limited educational supplies – simply gathering
the children together for a set period each day
and keeping them occupied is a valuable first
step. Identify teachers from the refugee popu-
lation who are willing to do this. The activities
should support the lifesaving measures under-
way in other sectors by including simple mes-
sages on health, sanitation etc. appropriate
for the children’s level, and by providing par-
ents with extra time to work on family survival
needs. Recreational and activity materials of
the type listed in Annex 3 could be used to
support such a programme.
80. The initial activities should then be de-
veloped into a primary school system, based
on the curriculum of the country of origin. The
timing of the transition from the simple activi-
ties to the more formal primary education will
depend on the evolution of the emergency.
Where the school system in the country of asy-
lum is similar to that of the country or area of
origin and refugee numbers are limited, re-
sources may be provided to local schools to
enable them to accommodate refugee stu-
dents, provided this is cost-effective.
Basic Education
81. A single, unified primary school system
should be developed as soon as possible. Edu-
The emergency education programme
should provide free access to organized ac-
tivities and basic education for all refugee
children and young people.
Every child has the right to education, as set
out in the Convention on the Rights of the
Child.
Informal schools started by the refugees
themselves should be supported, and can
be used as a basis to begin the programme.

cational materials of the type described in An-
nex 4 can be used to establish a basic educa-
tion programme. The materials on this list
would meet the initial needs of 1,000 refugees,
and include sufficient writing materials for two
classrooms of students in the earliest stages of
primary school plus one classroom for students
who have completed 2 or 3 years or more of
primary schooling. If each classroom is used ini-
tially for separate morning and afternoon
shifts, then a total of 240 students can be
catered for. Typically there would be two or
more writing materials kits (of the type speci-
fied in Annex 4) per school, according to the
number of classrooms on each site.
82. Where possible, contact should be made
with the Education Ministry of the country of
origin, initially to obtain school textbooks and
teachers’ guides and later regarding certifica-
tion of education and training received by
refugees and teachers. In order to open
schools as early as possible, temporary shelters
may be erected using plastic sheeting. The
community should be mobilized to help build
and maintain school buildings. Other items re-
quired for simple classroom structures, latrines
etc. should be constructed, using local materi-
als where possible.
83. Recreational and sports programmes for
children and adolescents should be included
as part of the education programme, and nec-
essary space should be allocated at the time of
site planning. The likelihood that additional
classrooms may be needed at a later stage
should likewise be borne in mind at the time
of site selection and demarcation.
84. Initial budgets should provide for the
printing or photocopying of classroom materi-
als for pupils and teachers, based on core
elements of the country of origin curriculum
as well as for the initial purchase of school and
recreational supplies. Budgetary provision
may also be necessary for the translation and
reproduction of materials supporting health,
environment, peace education and other mes-
sages.
Action
❏ Identify humanitarian agencies to be re-
sponsible for educational assistance in each
location and to establish and train commu-
nity education committees and parent/
teacher groups;
❏ Identify school sites, and erect temporary
shelter, ensure construction of latrines;
❏ Provide writing and recreational materials
to support community initiatives (see An-
nexes 3 and 4);
❏ Convene a refugee education committee.
Include refugees, local education authori-
ties, relevant UN agencies, implementing
partners and refugee educators, at appro-
priate (district and/or national) levels;
❏ Consult UNHCR Headquarters and the local
UNICEF office regarding availability of edu-
cational materials and school-books;
❏ Arrange the timing of educational and
recreational activities around other house-
hold and family activities to get maximum
participation and cooperation of refugees;
❏ Establish schooling in all refugee locations
with refugee education advisers and teach-
ers. Make plans for moving to a normal
system of education as soon as possible;
❏ Aim at a realistic level of service which can
be sustained over the longer term;
❏ Organize in-service training of teachers.
Training should cover: school organization;
basic teaching methods; review of basic
subject matter; and dissemination of mes-
sages regarding health, sanitation, environ-
mental conservation and peace;
❏ Monitor participation of girls in educational
programmes and promote girls’ enrollment
and attendance in school. Identify what are
the root causes of non-attendance by girls.
Promote recruitment and training of female
teachers (at least 50 per cent);
❏ Reintegrate out-of-school children and
youth in school or non-formal education.
Causes of school drop-outs and non-partici-
pation in community activities should be
monitored.
It is probable that young refugees will have
had their formal education disrupted. There
should therefore be no limitation of entry
to schooling according to the age of the
children or adolescents.
Smaller, decentralized schools are generally
preferable to large schools. Primary schools
should be established within walking dis-
tance for young children.
The curriculum should initially be based on
that of the country or area of origin, to fa-
cilitate reintegration upon repatriation.
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85. An education specialist may be needed
to advise on programme development. Liaise
with UNHCR Headquarters, regarding materials
and expertise available internally and through
standby arrangements (see Catalogue of Emer-
gency Response Resources, Appendix 1).
86. The provision of education may give the
refugees a privilege not enjoyed by the local
population of some locations. If the govern-
ment is in agreement and there is a common
language of instruction, it is usually appropri-
ate to open the schools to the local population.
Some assistance may be provided to national
schools located very near to refugee schools.
Key References
Assisting Disabled Refugees, UNHCR, Geneva,
1996 revision.
Environmental Guidelines, UNHCR set of envi-
ronmental guidelines for different sectors (May
1998 revision): Domestic Energy Needs in
Refugee Situations; Livestock in Refugee Situa-
tions; Forestry in Refugee Situations. UNHCR,
Geneva, 1996.
Evacuation of Children from Conflict Areas,
UNHCR, UNICEF, Geneva 1992.
Guidelines for Educational Assistance to Refu-
gees, UNHCR, Geneva, 1995.
Guidelines on the Protection of Refugee Women,
UNHCR, Geneva, 1991.
Memorandum of Understanding between
UNHCR and UNICEF, 1995.
Refugee Children: Guidelines on Protection and
Care, UNHCR, Geneva, 1994.
Refugee Emergencies: A Community-Based
Approach; UNHCR, Geneva,1996 (revision).
Sexual Violence Against Refugees: Guidelines
on Prevention and Response, UNHCR, Geneva,
1995.
Working with Unaccompanied Minors: A Com-
munity-Based Approach; UNHCR Geneva 1996.
Urban refugees, A Community-Based Approach.

The following chart covers the three phases of community services in an emergency. In each
phase activities are identified and quantitative and qualitative indicators listed which can be
used to assess the effectiveness of the community services programme.
CS = Community services
CSO = Community Services Officer
PHASE 1. ASSESSMENT, ACTION PLAN, GUIDELINES
PHASE 2. FOUNDATION OF COMMUNITY SERVICES PROGRAMME
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Annex 1 – Community Services Checklist
Major Activities Community Service Checklist
1.1. Assists with overall programme
management
1.2. Helps meet basic refugee
survival needs
❏ Are CS resources available through LOI?
❏ Does the CSO participate in the UNHCR management team
and support other sectors – water, sanitation, shelter,
health, food and nutrition, programme, protection and
environment?
❏ Have CS considerations been included in the needs and
resource assessment?
❏ Have refugee leaders been identified and involved in
assessment?
❏ Do vulnerable groups have access to initial assistance?
❏ Have relevant local government and other local resources
(NGOs, host families) been identified?
❏ Have CS standards and guidelines been set?
❏ Is there an action plan based on the above?
2.1. Facilitates refugee participation
and self-management
❏ Have refugee committees and information networks been
established with women’s participation as well as men and
are vulnerable groups represented?
❏ Is community awareness building and information dissemina-
tion undertaken?
❏ Is there a CS coordination mechanism with refugees, imple-
menting partners and government?

112
PHASE 3. BUILDING UP COMMUNITY SERVICES
3.1. Assistance to groups at risk,
promoting their self-sufficiency
Unaccompanied minors
❏ Are they protected from exploitation by provision of infor-
mation centres etc.?
❏ Are reception points established for reunifying parents and
children?
❏ How many UAMs are identified?
❏ Is the community mobilized to provide foster care?
❏ Is information disseminated on the reunification programme?
Traumatized children and adults
❏ Do children attend clinics, child care services, schools or
organized play?
❏ Is there a system of identification and referral of acute cases
to local facilities and are volunteers identified?
❏ Are there special programmes established and are children
participating in these therapeutic activities?
Single parent households
❏ Are neighbours or volunteers mobilized for support?
❏ Have interest groups formed?
Survivors of violence
❏ Are means of safety and security identified and imple-
mented?
❏ Are activities established to provide a supportive environ-
ment and re-establish normal life?
Disabled
❏ Are preventative measures established?
❏ Are children immunized?
❏ Have health education messages been identified and
disseminated?
❏ Are the disabled referred for identification and treatment?
❏ Are their families supported?
❏ Are the disabled receiving education?
Unaccompanied older persons
❏ Do they receive assistance in daily survival?
❏ Are they involved in community activities?
❏ Has a skills inventory of elderly been established?
Ethnic minorities and mixed couples
❏ Is their safety and security ensured through site planning?
❏ Have community activities been developed to foster peace
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3.2 Establishment and maintenance
of reproductive health services
3.3. Promotion of refugee self-
reliance and durable solutions
Adolescent s
❏ Are they involved in community activities?
Single Females
❏ Are they protected?
❏ Have neighbours and volunteers been identified to offer
support?
❏ Have community activities been organized?
❏ Have females been accomodated in a physically secure place
in the refugee community?
Other specific groups
❏ Is there a system of emergency support for urban refugees,
co-ordinated with programme and protection?
❏ Has consultation been held with refugees groups?
❏ Have needs and priorities been identified within categories -
safe motherhood, family planning, HIV/AIDS, STDs, sexual
and gender based violence, special needs of adolescents?
❏ Have clinics and services been established?
❏ Have refugee health workers been mobilized and trained?
❏ Are women attending the services?
Self-help activities
❏ Have projects been established for community development?
Training
❏ Are refugee training programmes developed, have refugees
been trained?
❏ Has capacity building (on-the-job or orientation training)
been organized for government, NGO, CS workers?
Education
❏ Are schools established (especially primary) and students
enrolled?
❏ Is non-formal education established?
❏ Is the education of girls taken into consideration?
Capacity building of refugee infra-structure
❏ Are structures established (including community centres,
clinics, housing)?
❏ Have some programmes been handed over to refugee
groups?
❏ Are women included as part of the refugee leadership
structure?

Sample
Unaccompanied Minor Registration Form
Child’s Name
PLACE PHOTOGRAPH Sex Age Registration No.
HERE
ICRC Number
114
Annex 2
1. Write names of brothers & sisters who
are with the child.
2. Find out the name and location of per-
sons who found or brought child to current
location, interview that person and record
that information.
3. Interview any other adults & children
who may have information on child’s family
and record that information.
4. Write down any visit the child receives:
date, name and address of visitor and rela-
tionship to the child.
5. Record child’s movements: date and
places: e.g. hospital, nutrition centre, etc.
and final move for family reunion or other
reasons.

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REGISTRATION FORM
Child Father Mother
Date Reg. No. Last and First Name Age Sex Last and First Name Last and first Name
Note: Find out immediately who found the child and name, address of that person.
Are there other persons who know how to find child’s family? Continue to talk to the child to
obtain and write down more information about locating family.
Last Address of Child Present Caretaker or With Siblings If Child leaves, note reasons:
& Family Organization Yes/no Family Reunion, moved to another
Complete Name place, where, reasons? – Died, etc.
and Address

Quantities indicated below are required for 1,000 total refugee population.
For the younger children:
Qty Item
2 footballs
2 medium-sized inflatable balls
8 skipping-ropes, long
40 skipping-ropes, short
80 slates (A4)
80 slate pencils
80 slate cleaning cloths
For young people
2 volleyballs
2 volleyball nets
2 footballs
100 exercise books (100 pages, lined)
100 pens, ball-point
For storage of the above materials
1 lockable metal or plastic container
1 padlock
For use by the team leading the activities
2 double sided chalkboards
2 registration books
2 notebooks A4 (250 pages, lined)
4 tambourines
4 large handbells
8 whistles
2 air pumps
2 puncture repair kits
6 boxes of white chalk (144 sticks)
2 soft tape-measures
2 lockable sports bags
2 small padlocks
Note
The materials on this list is sufficient for a refugee population of 1,000 people. (Thus, a refugee population
of 50,000 persons would require 50 times the quantities indicated on the lists).
Supplementary items based on local needs and culture should be added (such as items needed for local
games). If these items are not available locally the UNHCR Supplies and Transport Section in Geneva should
be asked to assist with their purchase. Specific items normally used by the refugee children should be
added.
116
Annex 3 – List of materials for Recreational and Other Activities
(Resource box for children and young people)

Quantities indicated below are required for 1,000 total refugee population.
For the younger children:
Qty Item
160 slates
160 slate pencils
160 slate cleaning cloths
160 pencils
160 exercise books (100 pages)
For older children
240 exercise books (100 pages, lined)
240 exercise books (100 pages, squares)
240 ball point pens
For storage of the above materials
3 lockable metal or plastic containers
3 padlocks
For use by the teachers
3 double sided chalkboards
6 boxes of white chalk (144 sticks)
1 chalkboard ruler
1 chalkboard compass
1 chalkboard set square
18 ball point pens, (6 blue, 6 red and 6 black)
3 large pencil sharpeners
3 register books
3 rulers, 30 cm
3 chalkboard dusters
9 erasers
3 boxes of HBO pencils (12)
3 poster sets (alphabet, numbers in the language and script of the refugees)
3 duffle bags to carry teacher items
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Annex 4 – Writing Materials List

11
Population Estimation and Registration
118

Overview
Population Estimates 8 -27 121-123
Introduction
Counting
Administrative Records
Lists Compiled by Refugee Leaders
Shelter Counts and Extrapolation
Aerial Photography
Registration 28-49 123-125
Introduction
Standard UNHCR Registration Materials
Registration Phases
Key References 125
Annexes
Annex 1: Format for Reporting on Population Details
in Emergency Situation Reports 126
Annex 2: Temporary Card 127
Annex 3: Control Sheet/Passenger Manifest 128
Annex 4: Registration Form 129
Annex 5: Codes for UNHCR Registration Form 130
PopulationEstimation
andRegistration
11
119

Situation
Refugee emergencies are characterized by a mobile population, often with rapidly fluctuating
numbers. It is often difficult to collect exact information on the total number and composition of
the population.
Objectives
To find out the total number of the population of concern, and the breakdown of the popula-
tion by age and sex, and by groups of special significance. The exact identity of those special
groups will depend on the particular circumstances of the emergency.
q Knowing who the refugees are and their number is essential for an efficient and cost effective
operation;
q Formal mass registration should normally be the aim. Where this is not immediately possible,
this can be reached in stages, starting with the first stage of population estimation;
q The final goal is a full registration of the refugee population;
q Information collected will be important for voluntary repatriation and re-integration into
country of origin;
q Involvement and understanding by the refugees themselves is essential to the success of regis-
tration.
Action
q Use population estimation techniques as a first step;
q Plan towards a full registration, keeping the population informed;
q Identify resources needed for full registration;
q Review the need for full registration and implement each phase towards full registration as
soon as each is feasible.
120

Introduction
q Knowing how many refugees there are and
who they are is fundamental for planning
and managing an efficient operation. There
are several ways of determining numbers
with sufficient accuracy;
q Although an accurate enumeration is essen-
tial, a formal mass registration should not
necessarily be an automatic response at the
start of an emergency;
q Successful registration needs good plan-
ning, careful implementation and consis-
tent monitoring.
1. To plan and manage an efficient opera-
tion, one of the first things to know is how
many refugees there are and who they are.
An accurate enumeration is therefore an es-
sential component of any assessment.
2. Chapter II, 8(f) of the UNHCR Statute
states that the High Commissioner shall pro-
vide for the protection of refugees by “obtain-
ing from Governments information concerning
the number and condition of refugees in their
territories". It must be made clear to the au-
thorities that an assistance operation cannot
be carried out without this information.
3.
There are a number of methods for accurate
population estimation (including age/sex break-
down) which do not require formal regis-
tration. In some circumstances these simpler
methods may be preferable as an initial re-
sponse.
4. The main advantage of registration is that
it provides a unique opportunity to acquire
basic information for subsequent program-
ming. It also helps avoid disputes about
refugee numbers. Registration will also be an
essential component of any individual or family
tracing programme and may be an important
factor in protecting refugees.
5. The most practical time to register
refugees is when they arrive at a reception/
transit centre or site for settlement. Registra-
tion is often carried out in conjunction with
health screening. Transferring refugees to a
new site also provides a good opportunity for
mass registration.
6. A discrepancy may arise with time, be-
tween official figures and the best estimates
of those working closest to the refugees.
Unless this discrepancy is swiftly resolved major
problems will follow. Small discrepancies are
likely, given the difficulties in enumeration
and registration. Large ones can be avoided
by timely action to verify numbers through
the various methods set out in this chapter.
7. For detailed information on registration
and population estimation techniques, refer
to Registration – A Practical Guide for Field
Staff.
Population Estimates
q For most methods of population estimation,
it is important to understand the commu-
nity structure of the beneficiary population;
q Estimates should be updated regularly.
Introduction
8. The following methods can be used to
estimate the population:
i. Counting;
ii. Administrative records;
iii. Lists compiled by refugee leaders;
iv. Extrapolation and Global Positioning Sys-
tem (GPS);
v. Aerial photography.
9. Understanding the community structure
of the beneficiary population is important for
most methods of population estimation – for
example, living arrangements and the average
number in a family group.
10. Annex 1 provides a format for reporting
population estimates as part of an overall situ-
ation report. Estimates should be updated
regularly.
Counting
11. If there are easily identified entry or
transit points during a refugee influx (e.g.
bridges or transportation sites), then a daily
count of the number of people passing
through these points can give a reasonable es-
timate of the refugee population. Sufficient
staff should be immediately positioned at
bridges and other critical points to provide
24 hour coverage. These staff members should
be provided with counters to aid counting,
and with simple recording and reporting
forms.
Although an accurate enumeration is essen-
tial, a formal mass registration should not
necessarily be an automatic response at the
start of an emergency.
andRegistration
11
121

Administrative Records
12. Local authorities at the refugee site may
collect population data on the refugees. If
possible, national census and other popula-
tion data should be obtained from the coun-
try of origin as a means of cross-checking the
host area data.
Lists Compiled by Refugee Leaders
13. Lists of names can be compiled by
refugee leaders and verified through a process
agreed with the refugee community.
The normal community structure and hierar-
chy in a society are often disrupted during
exodus and different people often take on the
role of leadership in the country of asylum. It
is essential to understand the role, motives
and effectiveness of the new leadership.
Community services and field staff can help in
this. Records compiled by refugee leaders may
even eliminate the need for registration, pro-
vided they are checked and verified at random
and updated regularly.
14. The lists can also be useful in identifying
vulnerable refugees who need special assis-
tance. Community services staff should visit vul-
nerable individuals and families to help confirm
the accuracy of lists provided by the leaders.
Shelter Count and Extrapolation
15. Population estimates can also be ob-
tained by calculating the total area of the
camp, then counting shelters in a fraction of
the camp, from which the population of the
whole camp can be extrapolated.
16. The total surface area of the camp can
be determined in a number of ways. It can be
determined by measuring the average length
and average width of the camp by pacing, or
by using a wheel meter or measurement tape
(if the camp is small), or by driving (if the
camp is large), using the trip meter to esti-
mate distance.
17. If there is a map of the camp, the surface
area of the camp can be estimated by overlay-
ing scaled gridlines on the map, and adding
up the number of the squares falling within
the camp’s boundaries.
18. Finally the surface area can be calculated
using GPS. GPS is a system which includes a
hand-held device (about the size of a large
calculator, costing about US $200 in 1999)
which displays on a small screen the latitude
and longitude of its current position. The
device uses satellites to establish its position. It
does not work under heavy forest cover or in
deep narrow valleys because it needs an unob-
structed sightline to several satellites.
19. The GPS is used to find the geographical
coordinates of the camp perimeter. The more
irregular the camp shape, the more perimeter
points will be needed. Once the camp perime-
ter is established, the surface area of the camp
can be calculated in the following ways:
i. Communicate the perimeter coordinates to
Headquarters Mapping Unit where these
can be used to calculate the area and the
result will be communicated back. Alterna-
tively, perimeter coordinates can be marked
on paper which has scaled gridlines, using
the X-axis to represent longitude and the
Y-axis to represent latitude. A line is drawn
joining these points. Counting the scaled
squares inside the perimeter will give the
total camp area. The distance represented
by one degree of longitude varies, getting
smaller moving towards the North and
South poles and larger towards the equa-
tor. In order to use this method, the dis-
tance which one degree represents at the
exact location of the camp must be found
out. This could be scaled off a map of the
area, if it has sufficiently large scale;
ii. Computer software (called Geographical
Information Systems or GIS) can automati-
cally map and calculate camp area based on
the perimeter points established by GPS.
Technical assistance for setting up this soft-
ware can be obtained from Headquarters.
20. Once the surface area has been estab-
lished, select a minimum of three sample areas
within the camp, each representing about one
thirtieth of the total camp area.
For example, if the total surface area of the
camp is 600,000 sq. meters, then each sam-
ple area should be 20,000 sq. meters. Any
variation of length or width which yields
20,000 sq. meters could be used for the sam-
ple sections. The normal GPS is not suffi-
ciently accurate for use in measuring the size
of the sample area and conventional means
of measuring should be used instead.
21. Count the number of family shelters in
each of the three sample sections. Obtain a
To ensure the system is as accurate and fair
as possible, it is particularly important to
understand the community structure.
122

figure for the average number of shelters per
section (i.e. – in 20,000 sq. meters). Then multi-
ply by 30 to extrapolate this over the entire
camp.
For example, if 3 sample sections have 120,
134, and 150 shelters respectively, then the
average number of shelters in a sample sec-
tion will be (120 + 134 + 145) / 3 = 133.
Thus the total number of shelters in the
600,000 sq. meters camp will be 133 x 30 =
3,990 shelters.
22. Determine average family size per shelter
to estimate the total population. For example,
if the average family size per shelter is 5, then
the total population is 5 x 3,990 = 19,950.
Aerial Photography
23. Aerial photographs (or sometimes videos)
of a camp can be used to count the number of
family shelters. This can be accomplished to a
limited extent by taking a picture from a
nearby hill, tower or tall building. In addition
to professional aerial photography, “amateur”
photographs taken, for example, from a
UNHCR plane can be used for estimation. Fly-
ing over the site may require the permission of
the authorities.
24. Aerial photographs must be accompa-
nied by a ground survey to establish the aver-
age family size per shelter and the percentage
of empty shelters.
25. The number of shelters appearing on
the photograph (or mosaic of photographs)
multiplied by the average family size per
shelter will give an estimate of the overall
population.
26. It is important to define an appropriate
scale for the photography. This will depend, in
part, on the size of the camps. High altitude
flights produce fewer photographs to handle
and interpret, but it will be more difficult to
distinguish the shelters.
27. The results of aerial surveys can be inte-
grated within the GIS from which maps can
then be produced.
Registration
x Registration provides the more detailed in-
formation needed for the efficient manage-
ment of an assistance operation;
x Registration is carried out over several
phases.
Introduction
28. Protection and assistance can be pro-
vided more efficiently if it is based on the
demographic information which can be ob-
tained through registration. Registration may
be required at different phases of an opera-
tion, for example: when there is a new
refugee influx; when there is a voluntary repa-
triation operation (see chapter 19 on volun-
tary repatriation); at any time during an assis-
tance programme to update information on
the population, or to collect information on
special groups e.g. unaccompanied minors
(see the annex to chapter 10 on community
services). The information below relates mainly
to registration at the time of an influx or for
updating.
29. In order to cope with large numbers it is
preferable to separate the components of a
registration exercise into six distinct phases,
according to the immediate needs of the pop-
ulation and the time and staff available to
carry out the task. Each phase should be
viewed as an entity in its own right, but each
leading to the next phase when circumstances
permit.
30. The six phases of registration are:
i. Estimating the population;
ii. Planning the registration and informing
the refugees;
iii. Fixing the population;
iv. Collecting information and issuing registra-
tion cards;
v. Computerization;
vi. Verification and updating.
31. The ‘ideal’ in registration is to work as
closely as possible with the refugee popula-
tion and its leadership, promoting community
responsibility and participation in all stages of
the process. Whilst this may not always be
possible initially, it should be a major objective
for both registration and camp management.
32. Formal registration requires considerable
time and personnel resources and needs the
active involvement of key partners to supply
the necessary personnel. Key partners include
government, other UN agencies, NGOs and
the authorities responsible for security. Regis-
tration should only be carried out when:
i. The safety of the staff and of the refugees
can be assured;
andRegistration
11
123

ii. The refugees accept the process;
iii. The key partners can supply personnel to
help carry out the registration;
iv. There are sufficient quantities of registra-
tion materials and other equipment, in-
cluding logistical support and communica-
tions.
Standard UNHCR Registration Materials
33. Standard materials for registration are
stockpiled at Headquarters, and are sufficient
to register 300,000 refugees. The materials in-
clude, for example, standard cards and forms,
wristbands, fixing tokens, etc. These materials
are included as part of a refugee registration
package – see Appendix 2, Catalogue of Emer-
gency Response Resources which has further
details of these resources and how to obtain
them.
Registration Phases
Phase 1: Estimating the population
34. This is the initial step to determine if
there is a need for a full registration and/or to
establish the planning figures for the registra-
tion exercise. It also provides working figures
for the population for operational planning
prior to the availability of more detailed pop-
ulation information.
Phase 2: Planning the registration and inform-
ing refugees
35. Designate a focal point to take respon-
sibility for planning and executing the regis-
tration. A pilot registration in another camp
can help identify potential difficulties. Plan-
ning should be a joint exercise with the con-
cerned partners, including refugees. Staff
training may be required at this stage. Ensure
that the necessary staffing, equipment, sup-
plies, security, telecommunications, vehicles
and logistical support will be available on the
date of the exercise. Decide on the level of
information to be collected on a control
sheet or registration form, and computeri-
zation.
36. At the same time as planning, there
should be an intensive information campaign
aimed at the refugee population at large (not
just the leaders) informing the refugees of the
procedures and benefits of registration.
Phase 3: Fixing the population
37. Give each individual in the target popula-
tion a fixing token (see Annex 2) or wristband.
This defines and temporarily freezes the size of
the group on whom more detailed informa-
tion will be collected later. Without the fixing
phase, registration will become a revolving
door, open to escalating distortion and abuse.
It must be done rapidly (preferably within a
few hours, maximum one day) to avoid multi-
ple and/or bogus registration. While the popu-
lation may be given only short notice of when
this will take place, it is necessary to ensure
that they understand what is happening.
Phase 4: Collecting information and issuing
registration cards
a) Collecting limited information on control
sheets and issuing temporary registration
cards
38. This phase (including issuing temporary
registration cards) should be carried out be-
fore the next food distribution because the
fixing token or wristband is not linked to veri-
fiable information about persons in need, and
cannot be used reliably for food and relief dis-
tribution.
39. Usually there will be no time to collect
detailed information immediately, yet assis-
tance should be distributed urgently and
basic demographic data is needed. The first
step therefore is to exchange the fixing token
or wristband for a temporary registration
card (also used as ration card – see Annex 2)
to all heads of family, and collect limited in-
formation on control sheets (see Annex 3).
In most instances this information will be
limited to the name of the head of family,
the size and age/sex breakdown of the family
and the number of the temporary registra-
tion card, with an indication of any immedi-
ately visible vulnerable family members (see
Annexes 4 and 5).
b) Completing registration forms and distrib-
uting of registration cards
40. The second step is to record detailed in-
formation about the families on Registration
Forms (see Annex 4) and to issue long-term
registration cards (also used as ration cards,
the standard UNHCR card lasts about one year
or 24 to 36 distributions). Where this is done
immediately after the fixing phase (without
the intervening step of temporary registration
cards) there will be time constraints. Where it
is done after the issue of temporary cards it
can be spread over a longer period of time,
with a cut off date for the validity of the tem-
porary cards.
124

41. This phase provides a verifiable linkage
between the identity of persons of concern
and the very simple forms of documentation
needed for processing large numbers of peo-
ple for assistance distribution. The two-step
process of information collecting is used be-
cause the second step can take considerable
time, and registration information is needed in
the interim for commodity distribution. It is
particularly important in this phase to have
personnel who speak the language and to en-
sure there is a common code for transliteration
between alphabets, particularly for names.
Phase 5: Computerization
42. Computerization can either start after
registration cards have been distributed or at
the same time if there are sufficient resources.
Computerization is normally carried out using
the “Field Based Registration System” (FBARS).
Standard codes are used in UNHCR Registra-
tion Forms to facilitate the collection and input
of data, particularly data on groups at risk (see
Annex 5).
43. Data can be entered on-site by trained
data-entry clerks or by out-sourcing to an off-
site specialized data entry company. The data
should be computerized as soon as possible
and not more than a few months after being
collected on the registration forms, otherwise
it will be outdated and unusable.
44. FBARS can handle two types of registra-
tion, either by family unit (control sheet) or by
individual (standard registration form). It also
has a convoy management module which can
be used during organized mass movement. It
can be used by both UNHCR Offices and by
Governments and implementing partners.
45. FBARS has easy-to-use search and report
facilities and can produce information for plan-
ning, monitoring and reporting, for example:
It is the Registration Form that constitutes
the core document of a UNHCR registration
and which will provide the basis for all fu-
ture reference, analysis, verification and up-
dating of the registration.
i. Data on the numbers and rate of arrival;
ii. Data on refugee groups including on vul-
nerable groups;
iii. Data consolidated both regionally and
globally;
iv. Food distribution lists;
v. Passenger manifests.
46. FBARS is available with the UNHCR regis-
tration materials (see above). The software
and documentation are currently available in
English, French and Russian. Information and
support for the use of FBARS is available from
the Information and Computing Services Sec-
tion at Headquarters.
Phase 6: Verification and information updating
47. Registration information will need to be
updated as the population changes with
births, deaths and population movements.
There should be a system to do this from the
start. The registered numbers should be cross-
checked with other information, for example,
births and deaths can be monitored through
the health services, and population movement
monitored through any of the methods for
population estimation described above.
48. Registration documents can acquire
monetary value, especially if they are used to
access assistance. There should be a system to
check these documents, for example random
verification at food distribution points to en-
sure the refugees are not using other people’s
documents or forged documents.
49. Verification is a continuous process, there-
fore routine verification, including house to
house visits, at food distribution centres, etc.,
should become a standard, regular and fre-
quent part of monitoring. Shelters should be
given an address (section/block/individual shel-
ter number) which will be linked to the indi-
vidual family registration information.
Key References
Registration – A Practical Guide For Field Staff,
andRegistration
11
125

Period: From to
126
Annex 1 – Format for reporting on population in emergency situation reports.
Decreases Pop. at end of period
Type / Current Origin / Pop. New Vol. Resettle- Other Total % of % of
status of location from at start arrivals return ment total total
popu- of 0-4 who are
lation period years* female*
*Estimate
Main source of information is ❏ Government; ❏ UNHCR; ❏ NGO
Main basis of the information is ❏ Registration; ❏ Estimate

andRegistration
11
127
Annex 2
Temporary Card
Ration Card
Wrist band

128
andRegistration
11
Annex 3 – Control Sheet
Feuille de contrôle
ControlSheetUNHCRHCRFeuilledecontrôle
PassengerManifestManifestedepassagers
Country:Site-Camp:Location:Block:VehicleNo:Clerk:Date:
Pays:Site-Camp:Lieu:Bloc:NodeVéhicule:Employé(e):
CardNo
No
decarte
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
NameofHOH
NomdeCDF
Household
Foyer
MFTotal
Children/Enfants
<5*5-17
MFMF
Adulte(e)
18-59>60
MFMF
Vulne
***
PlaceofOrigin
Lieud’origine
*notyetreached5th
birthday/moinsde5ansrévolusTotal
**SP=singleparentUE=unaccompaniedelderSF=singlefemalePD=physicallydisabledCI=chronicallyillUM=unaccompaniedminorMC=missingchild
=parentseul(e)=personneâgéenonaccompagnée=femmeseule=handicapé(e)physique=maladechronique=mineurnonaccompagné=enfantdisparu

andRegistration
11
129
Annex 4 – Registration Form
Formulaire d’engregistrement
UNHCRHCR
RegistrationForm
Formulaired’enregistrement
CountryofOrigin/Province-County/District/District-Commune:Town-Village/Ville-Village:EthnicOrigin/Origineethnique:
Paysd'origine:Province-Préfecture:
IntendedPlaceofReturn/Province-County/District/District-Commune:Town-Village/Ville-Village:Religion/Religion:
Lieuderetourprévu:Province-Préfecture:
(ifdifferenttoabove/sidifférentdeci-dessus)
RegistrationCardNumber
Numérodelacarted'enregistrement
1
2
3
4
5
6
7
8
9
10
Country/PaysSite/SiteLocation/LieuBlock/Bloc
Dateofarrival/Dated’arrivée:
dd/jjmm/mm
NameSexYOBRelationEducat.Occupat./SkillsVulnerab.
NomSexeDDNLiendeparentéFormat.Profess./Qualific.
RegistrationDate:By/Par:Remarks/Remarques:
Dated'enregistrement:

130
Annex 5 – Codes for UNHCR Registration Forms
Codes pour les formulaires HCR d'enregistrement
Sex Relation to HOH Education Vulnerability
Sexe Lien de Parenté avec CDF Formation Vulnérabilité
F Female SPO Spouse P SP Single Parent
Féminin (husband/wife) Parent seul(e)
Conjoint
(mari/femme)
M Male CHI Child S Secondary SF Single Female
Masculin (son/daughter) Secondaire Femme seule
Enfant
(fils/fille)
PAR Parent T Technical/ UE Unaccompanied
(mother/father) Vocational Elder
Parent Technique/ Personne âgée
(mère/père) Professionnelle non accompagnée
SBR Sister/Brother U University UM Unaccompanied
Minor
Sœur/Frère Universitaire Mineur
non accompagné
GPR Grandparent G Graduate PD Physically Disabled
(grandmother/
grandfather)
Grand-parent Diplôme Handicapé(e)
(grand-mère, universitaire physique
grand-père)
GCH Grandchild I Informal MI Mentally Ill
(grandson/ Education
granddaughter)
Petit-enfant Education non Malade mental(e)
(petit-fils/ Institutionnalisée
petit-fille)
INL In-laws N No Formal CI Chronically Ill
Education
Beaux-Parents Aucune Education Malade chronique
Institutionnalisée
OFM Other family X Unknown MC Missing Child
member
Autre Inconnu Enfant disparu
UNR Unrelated person O Others
belonging to
the household
personne Autres
étrangère vivant
avec la famille
A/U Aunt/Uncle
Tante/Oncle

andRegistration
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131

12
Site Selection, Planning and Shelter
132

Overview
Introduction 1-14 135-136
Dispersed Settlement
Mass Shelter
Camps
Organization of Response 15-21 136-137
Introduction
Contingency Planning
Information for Site Selection and Planning
Expertize and Personnel
Criteria for Site Selection 22-37 137-139
Introduction
Water Supply
Size of Camp Sites
Land Use and Land Rights
Security and Protection
Topography, Drainage and Soil Conditions
Accessibility
Climatic Conditions and Local Health and Other Risks
Vegetation
Site Selection Methodology
Site Planning: General Considerations 38-59 139-142
Introduction
Master Plan
Services and Infrastructure
Modular Planning
Environmental Considerations
Gender Considerations
Site Planning: Specific Infrastructure 60-70 142-144
Sanitation
Water Supply
Roads
Fire Prevention
Administrative and Communal Services
Shelter 71-87 144-146
Introduction
Type of Shelter
Standards
Plastic Sheeting
Tents
Prefabricated Shelters
Shelter for Cold Conditions
Reception and Transit Camps 88-93 146
Public Buildings and Communal Facilities 94-98 147
SiteSelection,Planning
andShelter
12
133

Situation
Suitable and well-selected sites, soundly planned refugee settlements with adequate shelter and
integrated, appropriate infrastructure are essential in the early stages of a refugee emergency as
they are lifesaving and reduce suffering. Refugee settlement in emergencies may take the form
of dispersed settlements, mass accommodation in existing shelters or organized camps. Initial de-
cisions on location and layout have repercussions throughout the existence of a refugee settle-
ment with long-term effects on protection and the delivery of humanitarian assistance.
Objectives
To provide suitable sites and shelter to accommodate refugees in emergencies.
q Use longer term planning principles, even when the refugee situation is expected to be only
temporary;
q Decisions on site selection and camp planning are very difficult to reverse, therefore when in
doubt seek technical support;
q Avoid high population density in settlements and in shelters;
q Avoid very large emergency settlements; refugee camps should normally be considered as a
last resort;
q Involve refugees in all phases of settlement and shelter planning and construction;
q Use a bottom-up planning approach, beginning with the smallest social units, preserving tradi-
tional social arrangements and structures as far as possible;
q Develop a comprehensive master plan, with the settlement layout developed around sanita-
tion and other services, providing room for expansion.
Action
q Assess the suitability of the refugee site and ensure that it meets the basic criteria;
q Simultaneously assess the most immediate needs for emergency shelter and provide the neces-
sary materials that cannot be met from locally available resources;
q Identify the most urgently required measures to improve site planning and layout, and imple-
ment these as soon as possible.
134

Introduction
1. Providing a place to live is a natural con-
sequence of granting asylum. As the layout,
infrastructure and shelter of an emergency
camp will have a major influence on the safety
and well-being of refugees, these factors must
be coordinated with the other vital sectors in-
volved in the humanitarian response: commu-
nity services, water, environmental sanitation,
health, education, food distribution, logistics,
forestry, and the environment.
2. Most refugee operations last much
longer than initially anticipated, therefore
cost-effective and sustainable infrastructure
and shelter should be planned from the start.
The expected life-span of a camp will influ-
ence site selection, camp planning and the im-
plementation of a refugee operation.
3. The role and responsibility of the na-
tional authorities in site selection is obvious
and of fundamental importance. Equally, the
refugees themselves must be involved as early
as possible; ideally, the needs of the refugees
should determine the location, size and layout
of the site. In practice a compromise has to be
reached between the needs of refugees and
external factors, both practical and political.
4. Good site selection, planning and shelter
will:
i. Save lives and reduce cost;
ii. Minimize the need for difficult, corrective
measures later;
iii. Make the provision of utilities, services
and infrastructure easier and more cost-
effective;
iv. Ensure most efficient use of land, resources
and time.
5. Emergency refugee settlements gener-
ally fall into one of three categories:
i. Dispersed settlement;
ii. Mass shelter;
iii. Camps.
Dispersed Settlement
6. This type of arrangement is where the
refugees find accommodation within the
households of families who already live in
the area of refuge. The refugees either share
existing accommodation or set up temporary
accommodation nearby and share water, sani-
tation, cooking and other services of the pre-
existing households.
7. Accommodation is often found with ex-
tended family members or with people of the
same ethnic background. This type of arrange-
ment may occur in both rural or urban settings.
The advantages of this type of settlement are:
i. Quick to implement;
ii. Limited administrative support is needed;
iii. Low cost;
iv. Fosters self help and independence;
v. It has less impact on the local environment
than camps.
8. The disadvantages of this type of settle-
ment are:
i. The host families and communities can be-
come overburdened and impoverished;
ii. It can be difficult to distinguish the host
population from the refugees. This may
pose problems where population estima-
tion and registration are required;
iii. Protection problems may not be as easy to
detect as when the population is more con-
centrated;
iv. Shelter and other forms of assistance are
likely to be needed by the host population
as well as the refugees.
Mass Shelter:
Public Buildings and Community Facilities
9. This type of settlement is where refugees
find accommodation in pre-existing facilities,
for example, in schools, barracks, hotels, gym-
nasiums. These are normally in urban areas
and are often intended as temporary or tran-
sit accommodation. The advantages of this
type of settlement are:
i. They are not continuously inhabited dur-
ing normal use and refugees can be accom-
modated immediately without disrupting
accommodation in the hosting area;
ii. Services such as water and sanitation are
immediately available, though these may
be inadequate if the numbers are large;
iii. The need to construct additional structures
specifically for the refugees is avoided.
ment are:
i. They can quickly become overcrowded;
ii. Sanitation and other services can become
overburdened;
iii. Equipment and structure can be damaged;
iv. Buildings are no longer available for their
original purpose, thus disrupting public
services to the hosting population;
v. Lack of privacy.
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Camps
11. This type of settlement is where refugees
find accommodation in purpose built sites
where a full range of services, for example
water, sanitation, are provided, usually exclu-
sively for the population of the site.
12. High density camps with very large pop-
ulations are the worst possible option for
refugee accommodation. However, this may
be the only option because of decisions by the
host country or simply because of a lack of
alternatives. They are common in areas with
little or no pre-existing infrastructure or where
the size of the refugee population is such that
it would put an intolerable strain on the local
resources if the two other types of settlement
mentioned above were used.
13. The advantages of this type of settle-
ment are:
i. Services can be provided to a large popula-
tion in a centralized and efficient way;
ii. There may be economies of scale in the
provision of some services compared with
more dispersed settlements;
iii. The refugee population can be easy to
identify and communicate with;
iv. Voluntary repatriation can be easier to
organize.
ment are:
i. High population density seriously increases
health risks to the population;
ii. High risk of environmental damage in the
immediate vicinity of the camp;
iii. High population concentrations, particu-
larly close to international borders, may
make the population vulnerable to protec-
tion problems;
iv. Large camps may provide a hiding place
and support base for armed groups who
should be excluded from refugee status. It
may be difficult to distinguish these groups
from the normal refugee population and
thus they may continue to benefit from as-
sistance.
Organization of Response
x Site selection, planning and shelter have
a major bearing on the provision of other
assistance.
x This subject must therefore be considered as
essential to a problem and needs assess-
ment and response.
x Expertize is necessary, as is swift coordinated
planning of a new site or the improvement
of existing conditions.
Introduction
15. Site selection, planning and provision of
shelter have a direct bearing on the provision
of other assistance and will be important
considerations in the overall assessment of
problems and needs and planning of response.
Decisions must be taken as part of an inte-
grated approach and in light of the advice of
specialists and views of the refugees.
Contingency Planning
16. Ideally sites should be selected, planned
and developed prior to the arrival of the
refugees. However, frequently the scale,
nature, timing or direction of movement of
the refugee flow will mean that some or all
aspects of a contingency plan may need to be
modified in the face of changing or unfore-
seen events. The information previously gath-
ered in the contingency planning process,
however, will usually be useful.
17. Because of the nature of emergencies,
and because practical and political considera-
tions are often the primary determinant of
the location of a site, the immediate priority
will often be to improve sites where refugees
have spontaneously settled.
Information for Site Selection and Planning
18. The information previously gathered
from the contingency planning process, and
information already available (maps and data)
should be reviewed to assist in determining
the range of options for sites. Information
that is essential for planning will often be in
the form of maps, reports surveys and other
data and should typically cover such areas as
topography, land use, climate, soils, geology,
hydrology, vegetation, infrastructure and key
natural and cultural resources. Sources of in-
formation may include government offices,
educational institutions and UN agencies.
UNHCR Headquarters, through the focal point
on Geographical Information Systems (GIS)
can also support operations with maps, aerial
photographs, satellite images and a special
geographic database.
Expertize and Personnel
19. Expertize may be required in the fields
of hydrology, surveying, physical planning,
engineering (e.g. water supply, environmental
136

sanitation, road and bridge construction,
building materials, etc.), public health, the en-
vironment and perhaps social anthropology.
Familiarity with conditions in both the country
of origin and asylum is very important. Prior
emergency experience and a flexible approach
are particularly valuable.
20. Expertize and advice should be sought
through UNHCR’s Engineering and Environ-
mental Services Section, who will advise on
the fielding of a specialist to coordinate activi-
ties in this sector. Potential sources of the neces-
sary expertize are government line ministries,
national and international NGOs, architecture
and engineering faculties, local industry and
professional organizations, as well as other
UN organizations.
21. Site selection and settlement planning
require broad consultations with all con-
cerned in the planning, development and use
of the site. When appropriate, multi-sector
planning teams, work-groups or task-forces
might be formed to better structure consulta-
tions and better solicit inputs. Consensus
should be sought, though it is rare that the
needs of all the parties will be fully satisfied.
Criteria for Site Selection
x Land may be scarce in the country of asylum
and no site may be available that meets all of
the desired criteria. If, however, the site is
clearly unsuitable, every effort must be made
to move the refugees to a better site as
quickly as possible. Both the problems which
result from a bad site, and the difficulties
inherent in a move, increase with time.
Introduction
22. The social and cultural background of
the refugees must be a primary consideration
and will be an important determinant of the
most appropriate type of site and shelter. In
many circumstances, however, choice will be
limited and land that meets even minimum
standards may be scarce. For uninhabited sites
or areas where refugee settlement is pro-
posed, it is wise to establish why the site was
not already in use, and examine whether the
reason – for example, no water or because it
floods in the monsoon – does not also exclude
use by the refugees.
Water Supply
23. A specialist assessment of water availabil-
ity should be a prerequisite in selecting a site.
A site should not be selected on the assump-
tion that water can be found merely by
drilling, digging, or hauling. Drilling may not
be feasible or may not provide water in
adequate quantity and quality. No site should
be selected where the hauling of water will be
required over a long period.
Size of Camp Sites
24. While there are recommended minimum
area requirements for refugee sites, these
should be applied cautiously and with flexi-
bility. They are a rule of thumb for an initial
calculation rather than precise standards.
The figure of 30 m2
surface area per person in-
cludes the area necessary for roads, foot paths,
educational facilities, sanitation, security, fire-
breaks, administration, water storage, distribu-
tion, markets, relief item storage and distribu-
tion and, of course, plots for shelter. The figure
of 30 m2
does not include, however, any land
for significant agricultural activities or livestock.
Although agricultural activities are not usually
a priority during emergencies, small vegetable
gardens attached to the family plot should be
included in the site plan from the outset. This
requires a minimum increase of 15 m2
per per-
son, hence, a minimum of 45 m2
overall land
allocation per person would be needed.
25. Large camps of over 20,000 people should
generally be avoided.
The size of a site for 20,000 people should
be calculated as follows assuming space for
vegetable gardens is included:
20,000 people x 45 m2
= 900,000 m2
= 90 ha
(for example a site measuring
948 m x 948 m).
26. If possible, there should be a substantial
distance between each camp. The distance
depends on a number of factors: access, prox-
imity of the local population, water supplies,
environmental considerations and land use.
Ideally, the recommended minimum surface
area is 45 m2
per person when planning a
refugee camp (including garden space).
However, the actual surface area per person
(excluding garden space) should not be less
than 30 m2
per person.
The availability of an adequate amount of
water on a year-round basis has proved in
practice to be the single most important
criterion, and commonly the most proble-
matic.
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27. Refugee settlements should have poten-
tial for expansion to accommodate increase in
the population due to natural increases or
new arrivals. The excess of births over deaths
means that the population could grow as fast
as 3 to 4% per year.
Land Use and Land Rights
28. In most countries land for the establish-
ment of refugee sites is scarce. Often, sites are
provided on public land by the government.
Any use of private land must be based on for-
mal legal arrangements in accordance with
the laws of the country.
Headquarters should be consulted at once if
this is a problem.
29. Once a possible site has been identified,
the process of site assessment should always
include clarification of land-ownership and
land rights. Almost invariably, land rights or
ownership are known, even though these may
not be well documented in public record, or
may not be obvious. Nomadic use of range-
land, for instance, requires huge areas and
may not look used.
30. The refugees should have the exclusive
use of the site, through agreement with natio-
nal and local (including traditional) authori-
ties. Traditional or customary land use rights
are very sensitive issues, and even if there may
be an agreement with the national govern-
ment to use a site, local groups may disagree
with the site being used even temporarily.
Clarification of access rights and land use re-
strictions is also necessary to define the rights
of the refugees to:
i. Collect fuel-wood, and timber for shelter
construction as well as fodder for animals;
ii. Graze their animals;
iii. Engage in agriculture or other subsistence
activities.
Security and Protection
31. In principle, the granting of asylum is
not an unfriendly act by the host country
towards the country of origin. However, to
ensure the security and protection of the
refugees, it is recommended that they be
settled at a reasonable distance from interna-
tional borders as well as other potentially
sensitive areas such as military installations.
Exceptions should only be made to this rule
where the interests of the refugees would be
better served, for example if there are good
prospects for early voluntary repatriation, and
security and protection considerations allow.
Topography, Drainage and Soil Conditions
32. Where water is readily available,
drainage often becomes a key criterion. The
whole site should be located above flood
prone areas, preferably on gentle (2 to 4%)
slopes. Sites on slopes steeper than 10% gradi-
ent are difficult to use and usually require
complex and costly site preparations. Flat sites
present serious problems for the drainage of
waste and storm water. Avoid areas likely to
become marshy or waterlogged during the
rainy season.
33. Soils that allow swift surface water ab-
sorption are important for the construction
and effectiveness of pit latrines. The subsoil
should permit good infiltration (i.e. allowing
water absorption by the soil, and the reten-
tion of solid waste in the latrine). It should be
noted that very sandy soils which are good for
infiltration are sometimes poor for the stabil-
ity of the pit. Where drinking water supplies
are drawn from ground water sources, special
attention must be given to preventing con-
tamination by pit latrines. The pit latrines
must not reach into the ground water. The
groundwater table should be a minimum of
3 m below the surface of the site.
34. Avoid excessively rocky or impermeable
sites as they hamper both shelter and latrine
construction. If possible, select a site where
the land is suitable at least for vegetable
gardens and small-scale agriculture.
Accessibility
35. The site must be accessible and close to
sources of necessary supplies such as food,
cooking fuel and shelter material. Proximity to
national services is desirable, particularly
health care services. Roads must be “all-
weather” providing year-round access. Short
access roads to connect the main road with
the site can be constructed as part of the camp
The OAU Convention states: "For reasons of
security, countries of asylum shall, as far
as possible, settle refugees at a reasonable
distance from the frontier of their country
of origin"1
.
Note that UNHCR neither purchases nor
rents land for refugee settlements.
138
1
Article II, paragraph 6 OAU Convention.

development. There may be advantages in
choosing a site near a town, subject to consid-
eration of possible friction between local in-
habitants and refugees.
Climatic Conditions, Local Health and Other
Risks
36. Settlement areas should be free of major
environmental health hazards such as malaria,
onchocerciasis (river blindness), schistosomiasis
(bilharzia) or tsetse fly. A site may have unseen
and/or irregular (but often locally known) risks
such as flash flooding, or serious industrial
pollution. For sites in dust prone areas, regular
dust clouds can foster respiratory diseases.
Emergency and temporary shelter need pro-
tection from high winds, however, a daily
breeze is an advantage. Climatic conditions
should be suitable year-round and careful ac-
count should be taken of seasonal variations:
a suitable site in the dry season may be unten-
able in the rains. Likewise, mountainous areas
may be suitable in summer, while in winter
the temperatures may fall way below freez-
ing. Seasonal variation can have a consider-
able impact on the type and cost of shelter,
infrastructure, heating fuel and even diet. As
far as possible, refugees should not be settled
in an area where the climate differs greatly
from that to which they are accustomed. For
example, settling refugees from malaria-free
high ground in a marshy area where the
disease is endemic can be disastrous.
Vegetation
37. The site should have a good ground
cover (grass, bushes, trees). Vegetation cover
provides shade, and reduces erosion and dust.
During site preparation, care should be taken
to do as little damage as possible to this vege-
tation and topsoil. If heavy equipment is used,
indiscriminate bulldozing or removal of top-
soil has to be avoided at all costs. If wood
must be used as domestic cooking fuel or for
the construction of shelter, the refugees
should be encouraged not to cover their
needs at the site or in the immediate vicinity.
Rather, a more dispersed pattern of wood col-
lection should be encouraged, in coordination
with local forestry authorities (see section on
site planning and management of natural re-
sources below). A quick survey of vegetation
and biomass availability for these purposes
should be undertaken. The site should not be
located near areas which are ecologically or
environmentally protected or fragile.
Site Selection Methodology
Obtain agreement among the planning team
on site selection criteria;
i. Prioritize the criteria list;
ii. Obtain suitable maps and other informa-
tion showing topography, road networks,
land use and water sources;
iii. Determine site characteristics through site
visits, identifying any potential flaws that
would exclude use of the site (e.g. no wa-
ter, flood-prone);
iv. Make simple estimates of the surface area
of each of the potential sites, e.g. use vehi-
cle trip-meter to estimate distances, or, if
feasible, use other methods such as Global
Positioning System (see chapter 11 on pop-
ulation estimation and registration);
v. Assess the implications of different layouts
on the potential sites and rank the sites on
the basis of the criteria list.
Site Planning: General Considerations
x The overall physical layout of a site should
reflect a decentralized community-based
approach focusing on family, village or
other social groups.
x Site planning should use the “bottom up“
approach starting from the characteristics
and needs of the individual family, and re-
flect the wishes of the community as much
as possible.
Introduction
38. The physical organization of the settle-
ment will markedly affect the health and well-
being of a community. Good site planning
will also facilitate an equitable and efficient
delivery of goods and services.
Master Plan
39. A “master plan” or overall site plan
should show the overall configuration of the
site, its surroundings and characteristics, and
its location vis-à-vis natural and existing fea-
tures including settlements. The plan should
take into account the social organization of
the refugees and principles of module plan-
ning, and should cover the following physical
features.
Whatever the circumstances, the overriding
aim must be to avoid high density refugee
camps.
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40. Natural and existing features:
i. Contours (lines joining points of identical
elevation are called contour lines);
ii. Rivers, forests, hills, flood plains, swamps;
iii. Rocky patches, sandy soils;
iv. Existing buildings, roads, bridges;
v. Farm land, electrical power grid, water
pipelines.
41. Planned features:
i. Shelter areas, potential expansion areas;
ii. Roads and footpaths;
iii. Drainage system and terracing;
iv. Environmental sanitation plan;
v. Water distribution plan;
vi. Utilities, camp lighting, etc.;
vii. Administration areas;
viii.Educational and health facilities;
ix. Distribution points;
x. Feeding centres;
xi. Markets and recreation areas;
xii. Fire prevention breaks;
xiii.Agricultural plots.
42. A topographical and planimetric survey
is crucial as the basis for site planning. The
plan or map should have a metric scale be-
tween 1:1,000 and 1:5,000, and in case of
large camps a scale of 1:10,000 or above. A
topographical survey describes the physical
features of a landscape (rivers, valleys, moun-
tains). A planimetric survey describes locations
within an area (e.g. the camp site).
Services and Infrastructure
43. The following are standards for services
and infrastructure and should be referred to
when preparing the master plan:
44. There are two situations for which plan-
ning is required:
i. Reorganizing existing spontaneously devel-
oped sites;
ii. New sites.
The design standards to be applied should
be the same in each case, although methods,
approach and timing, may differ substantially.
45. Where refugees have spontaneously set-
tled they may be understandably reluctant to
relocate. In such cases involvement of repre-
sentatives of the refugees in planning will usu-
ally facilitate a better understanding and ac-
ceptance by the refugees of priority changes.
An early and clear demarcation of plots, in-
cluding areas reserved for services, is advisable.
Modular Planning
46. Planning should start from the perspec-
tive of the individual refugee family. Begin by
considering the needs of the individual house-
hold, such as distance to water and latrines;
the relationship to other members of the
community (other relatives, clan, or ethnic
groups); and traditional housing and living
arrangements. Developing the community lay-
out in this way, and then considering the
larger issues of overall site layout, is likely to
yield much better results than beginning with
a preconception of the complete site layout
and breaking it down into smaller entities.
47. Thus planning and physical organization
of the site should start from the smallest mod-
ule, the family, and then building up larger
units as follows:
These figures are indicative and should be ad-
justed according to actual conditions.
48. Modular planning does not necessarily
mean using a grid layout for the site. The
linear or grid layout, with square or rectangu-
lar areas separated by parallel streets, has
Comprehensive but swift planning is essen-
tial for a new site.
140
1 water tap per 1 community
(80-100 persons)
1 latrine per 1 family (6 - 10 persons)
1 health centre per 1 site (20,000 persons)
1 referral per 10 sites (200,000 persons)
hospital
1 school block per 1 sector (5,000 persons)
4 distribution per 1 site (20,000 persons)
points
1 market per 1 site (20,000 persons)
1 feeding centre per 1 site (20,000 persons)
2 refuse drums per 1 community
(80 - 100 persons)
Family 1 family 4 - 6 persons
1 community 16 families 80 persons
1 block 16 communities 1,250 persons
1 sector 4 blocks 5,000 persons
1 camp 4 sectors 20,000
module persons
Module Consisting of Aprox. No.
of persons

often been used for its simplicity of design
and speed of implementation. However, every
effort should be made to avoid a rigid grid
design which promotes high density settle-
ments since environmental health problems
and disease are directly proportional to popu-
lation density. Whatever design is used should
take account of the natural features of the site
and of the identity of the refugee community.
49. The social organization, background and
family structure, are all factors that will influ-
ence the physical layout of a site. Initially, this
information, which is part of the basic prob-
lem and needs assessment should be gathered
through discussions with the refugees and
others knowledgeable about their society. A
full socio-economic survey of the refugee pop-
ulation should be conducted once resources
allow, and will be important in subsequent
planning, particularly for self-reliance and
durable solutions.
Environmental Considerations
50. Environmental considerations have to be
integrated into physical planning and shelter
from the very start of an emergency. Location
and layout of refugee camps, provisions made
for emergency shelter, and the use of local re-
sources for construction and fuel, can have a
major negative environmental impact. It is in
the earlier stages of an emergency where the
greatest environmental damage can occur:
This environmental damage has health, social
and economic consequences for the refugees
and local population, and can have political
repercussions.
51.
52. In order to safeguard the welfare of
refugees and local population by protecting
their environment, the following steps can be
taken:
i. Site selection: avoid environmentally pro-
tected areas. Where possible, a site should
be located a day’s walk from protected
areas or reserves;
ii. Site preparation: preserve existing vegeta-
tion and top-soil;
iii. Camp density and size: generally, the
smaller the settlements the better;
iv. Camp layout: the layout (particularly roads)
should follow the contour lines. This will
reduce erosion and preserve topsoil, and
avoid the creation of dangerous gullies. A
site layout that encourages clustered living
arrangements (which can also promote
security) promotes sharing of resources
including cooking which reduces fuel con-
sumption;
v. Shelter design (energy saving through in-
sulation): In cold climates, with extended
winter seasons where continuous heating
is needed, passive energy saving measures,
e.g. sufficient insulation of roof, walls,
floors can be extremely fuel saving and
cost-effective over time;
vi. Shelter and fuel: The materials for these
often come from the immediate surround-
ings of the camp. It is crucial to initiate at
the outset a system managing and control-
ling the use of local natural resources in-
cluding wood for construction and fuel.
Meeting the initial need for shelter materi-
als from the local resources can be particu-
larly destructive – so collection of such
materials should be carefully managed,
and/or materials should be provided from
an alternative source.
53. A simple natural resources management
plan should be drawn up as soon as possible.
A key feature of a basic plan will be controlled
harvesting and collection of fuel-wood and
timber. This should be discussed with govern-
ment bodies, such as forestry departments.
Controlled fuel-wood and timber harvesting
in the vicinity of the camp can include: defin-
ing certain areas and trees (by marking) which
should not be harvested, allowing only dead
wood to be collected; establishing an environ-
mental awareness programme to define clear
rules from the outset regarding harvesting
fuel-wood and to encourage respect for the
local resources; assigning responsibility for
managing and harvesting certain areas to
certain groups.
54. The decision on supplying fuel-wood
from outside the vicinity of the camp (e.g.
trucking in wood), how to supply it and the
quantity which is necessary, must be taken
according to the specifics of the situation. The
organized supply of fuel-wood or other fuel
such as kerosene can have complex repercus-
sions and should be instituted with care. Orga-
nized supply of free fuel on a regular basis is
only appropriate in certain circumstances: for
Rehabilitation effectively starts in the emer-
gency phase, and the costs of environmental
damage can be substantially reduced by
early environmental action in an emergency.
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example, where there are severe restrictions
on fuel from other sources. Where fuel-wood
is also readily available locally, its distribution
free of charge from outside the vicinity may
actually lead to increased consumption. In ad-
dition, refugees rely on local natural resources
for income, therefore if free fuel-wood is pro-
vided for cooking purposes, collection of
wood will continue for income generating
purposes (e.g. the sale of fuel-wood or timber,
charcoal making, etc.). To retain its value
therefore, fuel-wood should generally be sup-
plied in return for work.
55. The source and impact of wood supplied
to the refugees needs also to be considered:
i. Is it being harvested sustainably?
ii. Are the environmental problems merely
being moved elsewhere?
Care should be taken to prevent emergence
of local monopolistic suppliers. Finally, it
should be remembered that, if it is necessary
to introduce free fuel supply in the initial
stages of an emergency, it will be difficult to
later modify such arrangements.
56. A more comprehensive natural resource
management plan for the site and its immedi-
ate surroundings should be drawn up as soon
as possible (with specialist advice if necessary).
The comprehensive natural resource manage-
ment plan would cover, in addition to con-
trolled harvesting of timber for fuel men-
tioned earlier: promotion of fuel saving stoves
and fuel efficient cooking techniques, supply
of key energy saving devices (e.g. lids with
cooking pots, provision of mills or milled
grain), awareness raising programmes, identi-
fying the scope for better use of existing natu-
ral resources (e.g. using waste water, common
areas, and areas around shelters), for kitchen
gardens and tree planting, and reforestation
where necessary.
Gender Considerations
57. In emergencies there may be a loss of
normal community participation and the chan-
ges in demographic proportions may have
altered values and principles. This may mean
disruption of traditional mechanisms for the
protection and assistance of women. This chan-
ge of social patterns in refugee communities
may also result in:
i. Increased numbers of female headed house-
holds;
ii. Large numbers of unaccompanied children;
iii. Shortage of men;
iv. Disruption of the extended family, with its
role as social caretaker.
58. It is important that the needs of women
are taken into account in site planning. It may
be difficult to reach women if they do not
traditionally form part of the leadership struc-
ture of the community. In such cases the
community extension workers should be able
to assist in obtaining views on the protection
and security of women.
59. Among the refugees may be those who
are unable to build their own shelters because
of vulnerabilities. Specific actions should be
taken to ensure that the refugee community
themselves are organized to assist the more
vulnerable refugees with their shelter con-
struction.
Site Planning: Specific Infrastructure
x Under-estimation of surface area required
for social infrastructure and communal serv-
ices is a common problem.
60. At the start of an emergency it may be
difficult to foresee all the administrative and
communal services that are likely to be re-
quired. Where adequate space is available,
free areas should be allocated for future ex-
pansion of these services. Under-estimation of
the space required for future communal needs
is a common problem in sites of limited area.
Sanitation
61. While water requirements often deter-
mine site selection, sanitation requirements
often dictate site layout. High population
density together with poor sanitation is a
severe threat to health and safety of the
refugees. This is often the case when sites
have developed in an unplanned way. Mini-
mal organization of basic sanitation should be
introduced before reorganizing the site or
transferring the refugees to a new site. This
should include prohibiting uncontrolled de-
fecation and the establishment of public
latrines. Sufficient space must be left for re-
placement latrines. If communal latrines are
unavoidable, there should be a plan for their
maintenance and they should be accessible by
road to facilitate this.
Such a plan should be based on a baseline
environmental survey.
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62. For all sites, new or reorganized, the
goal should be one latrine per family. Only if
the latrine remains under the control and
maintenance of a family group is safety and
hygiene assured in the long run. The ideal
location of the family latrine is on the family
plot, as far as possible from the shelter.
Water Supply
63. Where possible, the maximum distance
between any shelter and a water distribution
point should be not more than 100 m, no
more than a few minutes walk. The layout of
the site should contain the water distribution
grid as an integral part of the service plan and
the pipes should be underground. Water
pipes should be kept at a depth that traffic or
other surface activities do not cause damage
(40 to 60 cm). In countries with very low tem-
peratures, the pipes must be positioned at
frost free depth (60 to 90 cm). Experience
shows that water distribution to small, socially
cohesive groups of 80 to 100 persons reduces
water wastage considerably and reduces de-
struction of taps, standposts and concrete
aprons. The water distribution point is more
likely to be kept well drained and hygienic
and the waste water used to irrigate commu-
nal or individual vegetable gardens.
64. Effluent and used water from water sup-
ply points should be well drained and eventu-
ally absorbed in soakage pits or gardens.
Roads
65. A site should have access and internal
roads and pathways connecting the various
areas and facilities. Accessroads should be
all-weather roads above flood levels and have
adequate drainage. If there has to be a signifi-
cant amount of vehicle traffic on the site, it
should be separated from pedestrian traffic.
All structures, including fences, should be set
back some 5 to 7 m from roads to provide ade-
quate visibility for pedestrians and vehicles.
Fire Prevention
66. As a rule of thumb a firebreak (area with
no buildings) 30 m wide is recommended for
approximately every 300 m of built-up area. In
modular camps firebreaks should be situated
between blocks. This area will be an ideal
for growing vegetables or recreation. If space
allows, the distance between individual build-
ings should be great enough to prevent
collapsing, burning buildings from touching
adjacent buildings. The distance between
structures should therefore be a minimum of
twice the overall height of any structure, if
building materials are highly inflammable
(straw, thatch, etc.) the distance should be
increased to 3 to 4 times the overall height.
The direction of any prevailing wind will also
be an important consideration.
Administrative and Communal Services
67. Buildings for administrative and commu-
nal services should be traditional structures, if
possible of a multipurpose design to facilitate
alternative uses. For example, buildings for ini-
tial emergency services could later be used
as schools or other community facilities. The
following list includes administrative and
communal services most often needed, the
division is indicative only – the importance of
maximum decentralization has already been
stressed. Whether centralized or decentral-
ized, administrative and other facilities should
be located and designed so as they are accessi-
ble to women as well as men.
68. Services and facilities likely to be central-
ized are:
i. Site administrative office;
ii. Services coordination offices for health
care, feeding programmes, water supply,
education, etc.;
iii. Warehousing and storage;
iv. Initial registration/health screening area;
v. Tracing service;
vi. Therapeutic feeding centre (if required).
69. Services and facilities likely to be decen-
tralized:
i. Bathing and washing areas;
ii. Supplementary feeding centres (if re-
quired);
iii. Education facilities;
iv. Institutional centres (e.g. for the disabled
and unaccompanied children, if required);
v. Recreation areas;
vi. Commodity distribution centres.
70. The location of the centralized services
will depend on the specific situation and in
particular on the space available. Where suffi-
cient space is available, there may be clear
advantages in having the centralized services
in the centre of the camp. Where space is
scarce, it may be better to have the central-
ized services located near the entrance to the
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143

camp. In particular, this will avoid the trucks
delivering supplies having to drive through a
densely populated site, with the attendant
problems of dust, noise and danger to pedestri-
ans. If some form of closed camp is unavoidable,
at least the centralized administrative services
will probably have to be located near the en-
trance. The warehouses should always be near
the administrative office for reasons of security.
Shelter
x Refugee shelter must provide protection
from the elements, space to live and store
belongings, privacy and emotional security;
x Blankets and clothing must be provided if
necessary;
x Refugee housing should be culturally and
socially appropriate and familiar. Suitable
local materials are best, if available;
x Shelter must be suitable for the different
seasons;
x Except for tents in certain circumstances,
prefabricated or special emergency shelter
has not proved to be a practical option on
either cost or cultural grounds;
x Wherever possible, refugees should build
their own housing, with the necessary orga-
nizational and material support.
Introduction
71. Shelter must, at a minimum, provide pro-
tection from the elements, space to live and
store belongings, privacy and emotional secu-
rity. Shelter is likely to be one of the most
important determinants of general living con-
ditions and is often one of the largest items of
non-recurring expenditure. While the basic
need for shelter is similar in most emergencies,
such considerations as the kind of housing
needed, what materials and design are used,
who constructs the housing and how long
it must last will differ significantly in each situ-
ation.
72. Particularly in cold climates or where
there are daily extremes of temperature, lack
of adequate shelter and clothing can have a
major adverse effect on health and nutritional
status.
73. The first steps are to assess the adequacy
of any emergency shelter arrangements ref-
ugees have already made themselves, and to
meet immediate needs through provision of
simple local materials.
If materials for a complete shelter cannot be
provided, provision of adequate roof materi-
als will be the priority, as walls can usually be
made of earth or other materials found on
site or locally available.
74. Wherever possible, refugees should build
or assist in building their own housing, with
the necessary organizational and material
support. This will help to ensure that the hous-
ing will meet their particular needs, will re-
duce their sense of dependence, and can cut
costs considerably.
Type of Shelter
75. Individual family shelter should be always
preferred to communal accommodation as it
provides the necessary privacy, psychological
comfort, emotional safety and a territorial
claim for future security. It provides safety and
security for people and possessions and helps
to preserve or rebuild family unity.
76. Emergency shelter needs are best met by
using the same materials or shelter as would
be normally used by the refugees or the local
population. Only if adequate quantities can-
not be quickly obtained locally should emer-
gency shelter material be brought into the
country. The simplest structures, and labour-
intensive building methods, are to be pre-
ferred. Materials should be environmentally
benign or gathered in a sustainable manner.
Standards
77. At the beginning of an emergency, the
aim should be to provide sufficient materials to
the refugees to allow them to construct shelter
meeting at least the minimum standards for
floor space, which in emergencies are:
i. minimum of 3.5 m2
per person in tropical,
warm climates, excluding cooking facilities
or kitchen (it is assumed that cooking will
take place outside);
ii. 4.5 m2
to 5.5 m2
per person in cold climates
or urban situations including the kitchen
and bathing facilities.
78. The design of shelter should if possible
provide for modification by the occupants to
suit their individual needs. In cold climates, for
The key to providing an adequate shelter is
provision of a roof.
Thus, in addition to shelter, provision of suf-
ficient blankets, appropriate clothing and
heaters will be a high priority.
144

example, it is very likely that people, in partic-
ular children and old people, remain inside
the shelter throughout the day, hence more
space is required.
Plastic Sheeting
79. Plastic sheeting has become the most
important shelter component in many relief
operations. In urban areas roofs can be re-
paired with specialized UV-resistant heavy duty
plastic sheeting. Windows can be repaired with
translucent reinforced panels. Tents and emer-
gency shelters can be covered with highly re-
flective UV-resistant woven plastic tarpaulins.
80. Wooden support-frames and stick skele-
tons for these shelters, if collected from
surrounding forests, can harm the environ-
ment considerably. It is therefore important to
always supply frame material (which is suffi-
cient to support plastic). The frame material
should come from sustained, renewable sup-
ply sources. Bamboo is ideal, if available. Stan-
dard specifications for plastic sheeting can be
found in Annex 1 to chapter 18 on supplies
and transport.
Tents
81. Tents may be useful and appropriate for
example when local materials are either not
available at all or are only seasonally available
or for refugees of nomadic background. The
life-span of an erected tent depends on the
climate and the care given by its occupants; it
may be as long as 2 to 3 years. Where tents
are used, repair materials should be provided
to the occupants. A group of tents may also
serve as transit accommodation while more
appropriate shelter is constructed. Standard
specifications for tents can be found in Annex 1
to chapter 18 on supplies and transport.
82. Tents should be covered with an outer
fly to shade and protect the tent below. The
tent should provide free standing height all
over the floor area. Tents are difficult to heat
as canvas walls and roof cannot provide insu-
lation against heat loss. However, it is possible
to some extent to heat a good, well sealed
tent, if enough heat is produced in a tent
stove. This stove needs fuel (usually wood or
kerosene) around the clock to maintain a com-
fortable temperature. The fuel cost will be
high. Therefore tents are not suitable as cold
climate shelters, but if there is no choice, they
can save lives and bridge the time until more
suitable shelters are established.
Prefabricated Shelters
83. Neither pre-fabricated building systems
nor specially developed emergency shelter
units, even winterized shelter units, have
proved effective in large scale refugee emer-
gencies. Reasons include:
i. High unit cost;
ii. Long shipping time;
iii. Long production time;
iv. Transport problems including cost of trans-
port;
v. Inflexibility.
Usually emergency shelter arrangements will
have been made before these systems can
arrive.
Shelter for Cold Conditions
84. Climates where cold weather with rain
and snow prevails over extended periods (3 to
5 months), demand that people live primarily
inside a house. In particular, the more vulnera-
ble persons such as the elderly, small children,
the sick and the handicapped need heated,
enclosed spaces.
85. Shelters which are sufficient to with-
stand cold conditions have to be of a high
standard and are complex and expensive to
build. The following should be considered:
i. Wind protection of walls, roofs, doors and
windows;
ii. Insulated enclosed space, with simple di-
viders;
iii. Heating stoves;
iv. Structural stability (to withstand snow- and
wind-loads);
v. Protected and heated kitchens and sanitary
facilities.
86. To help people survive the impact of cold
weather in an emergency, a strategy should
focus on the following:
i. Individual survival.
It is extremely important to protect the
human body from loss of heat. Particularly
during sleep, it is important to be able to
keep warm, by being able to generate and
retain body heat with blankets, sleeping
bags, clothing and shoes, and food with
high calorific value;
ii. The living space.
It is very important to concentrate on a lim-
ited living space and to ensure that cold air
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145

can be kept out of this space. This can be
done by sealing the room with plastic
sheeting and sealing tapes. Windows and
doors should be covered with translucent
plastic sheeting, stapled on window and
door frames. Large rooms should be subdi-
vided, with the help of plastic sheets or
blankets. New structures should be con-
structed with a sealed space to keep the
cold air out. Walls, ceilings and floors of
the living space should be designed to in-
sulate from cold air and to retain warm air
as efficiently as possible;
iii. Heating.
Keeping the inside of a shelter at a, com-
fortable temperature (15 to 19° C) depends
to a large extent on the outside tempera-
ture, the type of construction, the quality
of insulation, the orientation of the build-
ing, and on the type and capacity of the
stove. Depending on these conditions, a
stove with 5 to 7 kW performance should
have the capacity to heat a space of 40 to
70 m2
in most cold areas. Usually the stove
for heating is used for cooking and baking
as well.
87. For reasons of safety, convection stoves
are recommended over radiation stoves. Fuel
efficiency is very important as fuel may not
be readily available, and its supply can pose
major logistical problems. Overlooking regular
fuel supply in the beginning can have very
negative environmental consequences.
Reception and Transit Camps
88. Reception and transit camps are used
where it is necessary to provide temporary
accommodation for refugees. These camps
might be necessary at the beginning of a
refugee emergency as a temporary accommo-
dation pending transfer to a suitable, safe,
longer term holding camp, or at the end of an
operation, prior to repatriation, as a staging
point for return. Reception and transit camps
are therefore usually either intermediate or
short term installations.
89. Whether the transit camp is used in an
emergency or as part of a repatriation opera-
tion, the camp should be designed for short
stays of 2 to 5 days and a high turnover rate.
90. The required capacity of a transit camp
will depend primarily on how many people
will be channelled through the camp and in
what time. This will depend on the absorption
or reintegration capacity at the receiving end
as well as the total time foreseen to carry
through the operation.
91. The primary criteria for site selection for
a transit camp are:
i. Good access (road, port, airport);
ii. The availibility of water;
iii. Good drainage (minimum 2% slope);
iv. Adequate conditions for sanitation.
92. The transit camp must be strictly func-
tional and equipped with considerably higher
construction standards than regular refugee
camps. Operational maintenance must be fully
supplied through the camp management. In
particular, cleaning and disinfection of accom-
modation and sanitation areas need to be
carried out on a regular and ongoing basis.
Prepared food should be provided and indi-
vidual food preparation should be prohibited.
The transit camp will therefore need kitchen
facilities, wet food distribution and a hall for
food consumption. In view of the expected
short-term stay, a minimum of 3 m2
per person
is needed.
93. Standards for the construction of transit
facilities are:
Accommodation: in barracks, long houses
(open plan or subdivision for groups/fami-
lies of 5 persons) heated in cold climates.
For example, a tent of 85 m2
can accom-
modate approximately 14 to 25 persons;
i. Sanitation: 20 persons per latrine, 50 per-
sons per shower. Regular and intensive
maintenance is required;
ii. Water supply: absolute minimum provi-
sion of 7 litres/person/day plus water re-
quired for kitchens, cleaning and sanita-
tion;
iii. Food preparation: approximately 100 m2
per 500 persons;
iv. Storage: 150 to 200 m3
per 1,000 persons;
v. A public address system;
vi. Lighting;
vii. Arrival zones and departure zones which
are separated from accommodation zones;
viii.Administrative offices and staff accommo-
dation;
ix. One health post;
x. Security fencing (depending on circum-
stances).
146

Public Buildings and Communal
Facilities
x Public buildings should be used only as
short term accommodation to gain time to
provide more suitable shelter;
x Right from the beginning, intensive mainte-
nance of infrastructure and utilities should
be provided;
x The UNHCR shelter standards should be
applied.
94. Public buildings such as schools are
sometimes used initially as shelter. This is
particularly the case in cold conditions which
demand very rapid shelter response.
95. Where possible such accommodation in
public buildings should be a temporary solu-
tion. The supporting infrastructure of the
building (water, electricity, sanitation) will de-
teriorate very quickly with concentrated use,
to the extent that living conditions can be-
come dangerously unhealthy. The buildings
decay rapidly primarily because they are un-
suited to such large numbers and lack the
necessary infrastructure and utilities. In addi-
tion the very low sense of responsibility by its
inhabitants contributes to the deterioration.
96. The normal use of the building has to be
suspended with various social and economic
consequences (the buildings might otherwise
be used for example as schools, sanatoria,
workers’ or students’ dormitories, sports halls
and hotels). Both local and national govern-
ments are therefore reluctant to transform
public buildings into humanitarian shelter.
97. In order to ensure a healthy environ-
ment, it is particularly important to ensure
regular operational and preventive mainte-
nance in public buildings. Neglecting to main-
tain a building from the outset can have
serious health consequences for the refugees,
and economic consequences for the host gov-
ernment.
98. The UNHCR minimum shelter standard
of some 3.5 to 5.5 m2
per person should be
applied, as well as the standard for public
sanitation (maximum 20 persons per toilet/-
latrine). Public buildings, such as schools, are
not equipped to serve the sanitation needs of
large populations including basic toilet use, as
well as personal hygiene such as laundry and
cleaning dishes.
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147

Overview 1 150
When to start distribution 2 151
Choosing a Commodity Distribution System 3-5 151
Components of Distribution Systems 6-18 152-153
General Considerations
Refugee Involvement
Logistical Considerations
Managerial Considerations
The Role of Refugee Women 19-24 153
UNHCR Policy
Areas of Women’s Involvement
Monitoring 25 153
Key References 153
Table
Table 1: Commodity Distribution Systems 151
CommodityDistribution13
149

Situation
Emergency situations are characterized by an urgent need to distribute life sustaining commodi-
ties such as food, shelter materials, cooking implements and fuel. The fair distribution of com-
modities is often problematic and groups and individuals from among the refugees can use the
confusion of the emergency to obtain unfair control over the resources which are distributed.
Objectives
To provide life-sustaining commodities to the refugee families, fairly, according to specified rations,
selection criteria and priorities.
Principles of response
q The design of the distribution system should be based on a thorough understanding of the
social structure of the refugees;
q The refugees should be kept continuously informed on the design of the distribution system,
on the timing of distributions and on the quantity of commodities to be distributed;
q All groups among the refugees should be appropriately involved in the design and operation
of the distribution system. Particular care must be taken to involve women;
q The family as the basic social unit plays the key role in meeting basic needs of individuals,
therefore, the family unit should be the target of commodity distribution;
q The commodity distribution cycle should be regular and predictable. Irregularities in the distri-
bution cycle increases the tendency of the refugees to circumvent the system.
Action
q Use community services structures (or set up new structures if necessary) to consult the
refugees on the design and operation of the commodity distribution system;
q Select and implement a commodity distribution system;
q Set up a system by which information on the operation of the commodity distribution system
can be regularly conveyed to the mass of the refugees;
q Allow the refugees themselves to monitor the fairness of the distribution system.
150

Introduction
x Distribution passes control over a commod-
ity to the intended beneficiaries. Distribu-
tion must be fair, and commodities must be
distributed according to specified rations,
selection criteria and priorities;
x Distribution must be monitored to ensure
that it is fair and reaches vulnerable groups;
x However ingenious the distribution system
devised, it is unlikely to work fairly without
the support of the refugees themselves;
x UNHCR’s distribution systems should pro-
vide material assistance to and through
families.
1. The principles in the chapter apply to the
distribution of both food and non-food items,
although food often forms the bulk of the
commodities distributed. This chapter pro-
vides brief guidance on the subject. The hand-
book “Commodity Distribution: A Practical
Guide For Field Staff” is essential reading for
those who plan to set up and run a commod-
ity distribution system (see Key References at
the end of the chapter).
When to start distribution
2. There is usually a degree of uncertainty
when planning distributions. Ideally, distribu-
tion of commodities should start only after a
full needs assessment has taken place and
when the size of the beneficiary population is
accurately known. However, the reality of
almost all emergency programmes is that dis-
tributions must start prior to these ideal condi-
tions being reached. Try not to start distri-
bution until there is at least a minimum
framework in place to build upon, and a plan
as to how subsequent distributions will be im-
proved.
Choosing a Commodity Distribution
System
3. Two basic issues are:
i. How much responsibility should be given
to the refugees themselves; and,
ii. What resources are available to set up and
run the system (including time, space, ex-
perienced staff as well as financial re-
sources (see Table 1).
4. There are three broad categories of distri-
bution system (see Table 1). Note that the head
of family can either be a woman or a man.
5. There will probably be a period in the
early stages of an emergency when it will not
be possible to register or issue ration cards.
However, effective distribution of commodi-
ties is possible without ration cards.
Distribution systems can be classified accord-
ing to who receives the commodities.
151
Table 1 – Commodity Distribution Systems
Commodities are given in bulk to
a representative of a large group
of beneficiaries who further
divides it among the group.
All of the commodities for the
group of families are handed
over to a representative of the
group. The group usually con-
sists of about 20 heads of family.
The commodities are then im-
mediately redistributed to the
individual family heads by the
representatives.
Commodities are handed over
directly to each family head.
x Early days of an emergency.
x Mass influx of refugees.
x No formal registration.
x Large populations.
x When the population is
comparatively stable, and/or
have ration cards.
x Where the beneficiaries are
living in camps.
x Where the population is
comparatively homogeneous.
x When the population is
comparatively stable, and/or
have ration cards.
x Where the beneficiaries are
living in camps, settlements
or integrated within the local
population.
Through Through Through
Group Leadership Groups of Heads of Family Individual Heads of Family
System Description
➤➤➤➤➤Degreeofselfregulationbyrefugeesincreases➤➤➤➤➤
Types of situation in which these systems have been used
➤➤➤➤➤ Amount of resources needed increases ➤➤➤➤➤
Degree of self regulation by refugees increases

Components of Distribution Systems
6. The ideal distribution system should be
safe and easily accessible to the intended
beneficiaries.
❏ Safe: Distribution should be organized in
such a way that the system is safe for all
who use it. Particular attention should be
given to women and the vulnerable;
❏ Accessible: Distribution points should be
close to where people live and located
so that the access of particular groups is
not restricted. The timing of distributions
should suit the beneficiaries.
7. The refugees themselves can provide the
most effective monitoring and control of the
distribution system. In order to do this they
must be informed as to the type and quantity
of commodities to be distributed and method
and timing to be used.
8. In the early stages of a new operation,
particularly in large emergencies, effective
control over distribution may not be possible.
However, from the start, each action taken
should contribute to a process whereby con-
trol by UNHCR is progressively established. For
example the provision of plastic sheeting,
tents and other shelter material is very impor-
tant because it reduces the mobility of the
population. Once it is issued, the population
can settle and commodity distribution and
other services will be easier to organize.
Refugee Involvement
9. Ensure the refugees are well informed
(both women and men). They must know what
they should receive, how much, when and
how. This information should come to them
directly rather than through their leadership.
Ensure that the refugees participate at all
levels of the distribution process. However, be
aware of the dangers of non-representational
leadership (see chapter 7 on coordination and
site level organisation).
10. Irregularities in the distribution cycle un-
dermine the confidence of the beneficiaries
and increase their need to circumvent the
system.
Logistical Considerations
11. In camps, the distribution system should
allow beneficiaries to collect rations close to
where they live (not more than 5 km away)
and at regular monthly intervals. For dispersed
populations refugees should not have to travel
more than 5 to 10 km to distribution sites.
12. In the case of food distribution, it is
usually preferable to distribute dry uncooked
rations in bulk. Avoid mass cooked food distri-
bution for the general ration (see chapter 15
on food and nutrition).
Managerial Considerations
13. Distributing relief commodities involves
several organizations and many individuals,
for example, the government, WFP and NGOs.
Co-ordination structures must be put in place,
including regular meetings of all interested
parties. The frequency of these meetings will
depend on the situation. At the start of an
emergency daily meetings will probably be
needed. As the situation normalizes the
frequency of meetings can be reduced to one
per month.
14. It is important to understand the roles
and responsibilities of the main actors invol-
ved at various stages of commodity distri-
bution. In the case of food distribution the
modalities of distribution as well as the re-
porting requirements are set out in a tripartite
agreement between UNHCR, WFP and the
implementing partner. The respective roles of
UNHCR and WFP in relation to food aid are set
out in their Memorandum of Understanding
(Appendix 3). See Chapter 15 on food and
nutrition for more information on food distri-
bution and on of the role of WFP.
15. The family, as a basic social unit, is the
target of distribution. This applies to food and
non-food items. Providing assistance to and
through families is effective as the basis for
the distribution system and also supports the
family unit. However this does not mean that
the ration has to be handed to each family
directly. In some situations distribution can be
more effective through groups of families or
other community structures.
16. Avoid payment in kind to distribution
workers. It makes monitoring difficult and, in
The refugees should be able to see the dis-
tribution process for themselves as they are
the best monitors and controllers of the
process.
A system needs to be put in place whereby
the refugees can be continuously informed
of changes in the quantity, type or method
of distributions.
152

times of shortages, vulnerable people may be
deprived of commodities in order to pay staff.
17. In camps, aim to have at least 1 distribu-
tion site per 20,000 refugees.
18. Plan to have a minimum of 2 distribution
staff per 1,000 beneficiaries.
The Role of Refugee Women
UNHCR Policy
19. UNHCR's policy is to ensure the maxi-
mum possible appropriate involvement of
refugee women in all aspects of distribution.
Determining the nature of this involvement
requires consultation with refugee women
and men and a careful evaluation of the total-
ity of the needs and responsibilities of refugee
women and their families. Failure to take
these considerations into proper account can
have negative implications that go well be-
yond the distribution system itself.
20. In the great majority of refugee commu-
nities, the objective of fair distribution will be
best served by having an appropriate balance
of men and women. However, it is normally
women, and in particular single female heads
of household, who are either under-repre-
sented or excluded.
Areas of Women’s Involvement
21. There are three areas where refugee
women can be involved:
❏ In the decision-making processes and moni-
toring;
❏ In the distribution itself (women supervise
and/or hand out the commodities); and,
❏ In collecting the commodities (where they
are distributed to women not men).
22. Women must be directly involved in deci-
sion-making and monitoring, including being
involved in planning the system and determin-
ing their own participation in its implementa-
tion. Women should be members of the com-
modity distribution or food committees.
23. Women should choose representatives
who will be involved in the distribution itself.
The extent and nature of this participation
will depend on factors specific to that situa-
tion.
24. If women themselves feel that the most
effective way to ensure that they receive their
fair share and to retain control of its use
thereafter, is by actually collecting, or at least
being present at the distribution of food
and non-food items for their household
(whether or not they are its head), this should
be ensured.
Monitoring
25. Monitoring the distribution system is
an important management responsibility of
UNHCR. General principles of monitoring are
described in chapter 8 on implementing arran-
gements. Monitoring distribution includes
monitoring the actual distribution of the com-
modity and spot checks in the camps on distri-
bution days. See chapter 15 on food and nutri-
tion, and “Commodity Distribution: A Practical
Guide For Field Staff”, for more details about
monitoring distribution systems.
Key References
Commodity Distribution: A Practical Guide For
Field Staff, UNHCR, Geneva, 1997.
Memorandum of Understanding on the Joint
Working Arrangements for Refugee, Returnee
and Displaced Persons Feeding Operations,
Model Tripartite Agreement: UNHCR, WFP and
the Implementing Partner, WFP/UNHCR, March
1998.
UNHCR Training Videos: Under Watchful Eyes,
UNHCR, 1995 – Sorting it Out, UNHCR, 1993.
153

Overview 1- 3 156
Health Assessment, Planning, Monitoring and Surveillance 4-25 157-161
Initial Assessment
Monitoring and Surveillance: The Health Information System
Mortality
Morbidity
Main Health Programmes 26-72 161-169
Curative Care
Immunizations
Communicable Disease Control
Reproductive Health
Tuberculosis Control
Mental Health
Capacity Building
Medical Supplies
Laboratory Services
Organization of Refugee Health Care 73-88 165-170
Introduction
Community Level Health Care
The Health Centre
Referral Services
Human Resources and Coordination 89-115 170-173
The Refugees
Staffing Needs
National Health Authorities
UNHCR Health Coordinator
Other Specialized Staff
Role of the UN and Specialized Agencies
Role of NGOs
Key References 174
Annexes
Annex 1: Health Information System 175-182
Annex 2: Possible Organisation of Health Services in a Major Emergency 183
Figures and Tables
Figure 1: Relative Impact of Health Measures 157
Figure 2: Assessment and Response 159
Table 1: Crude Mortality Rate Benchmarks 161
Table 2: Common Diseases 165
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155

Situation
It is well known from experience that emergencies result in excess loss of life (high mortality)
and increased incidence of diseases (high morbidity). The diseases mainly responsible for high
mortality and morbidity are measles, diarrhoeal diseases (including cholera), acute respiratory in-
fections (pneumonia), malnutrition and malaria. The factors which increase the risk of disease
and which should be addressed in any emergency response include an unfamiliar environment,
poverty, insecurity, overcrowding, inadequate quantities and quality of water, poor environmen-
tal sanitation, inadequate shelter and inadequate food supply.
Objectives
q To promote the enjoyment of the highest attainable standards of physical and mental health1
,
and to prevent excess mortality and morbidity.
q Priority should be given to a Primary Health Care (PHC) strategy focusing on the vital sectors of
water, food, sanitation, shelter and physical planning. In addition, preventive and basic cura-
tive health services should be provided. The health of the majority of the refugees is more
likely to be affected by these measures than by individual care;
q Refugee participation in the development and provision of health services is essential;
q Services provided for refugees should be at a level equivalent to that appropriate to host
country nationals – i.e. there must be parity;
q The health programme should also be sustainable. It is sometimes better not to start activities
which cannot be maintained, than to cease supporting activities which both implementing
partners and beneficiaries have come to take for granted;
q The health services must be of a quality that ensures that programmes, providers and institu-
tions respect patients’ rights and comply with nationally and internationally accepted health
standards and principles of medical ethics;
q Many countries will not have sufficient human and material resources to respond adequately
to the extraordinary needs generated by an emergency. Experienced national and interna-
tional NGOs should be mobilized to initiate urgent life saving measures. Rapid integration
with the Ministry of Health (MOH) is essential;
q Health services should take into account the particular vulnerability of children under five
years during emergencies. Priority should be given to immunizations, feeding programmes,
oral rehydration therapy, Vitamin A prophylaxis, basic curative care and family health;
q Health services should also take into account the special needs of women who play a central
role as primary health care providers and at the same time bear a disproportionate share of
suffering and hardship;
q A UNHCR Health Coordinator should be appointed with responsibility for the health programme
and for ensuring that nationally and internationally accepted standards and best practice are
adhered to, in close coordination with the national health authorities and other organizations.
Action
q Assess the health and nutritional status of the population and identify the critical health risk
factors in the environmental conditions;
q Establish priority needs, define the required activities to meet those needs and determine the
required human, material and financial resources to perform these activities;
q In accordance with these activities, set up community-based health services and devise the
appropriate organizational and coordination mechanisms both with the health partners and
the other relevant sectors of assistance;
q Promote basic health education for the refugees and train refugee health workers;
q Monitor and evaluate the effectiveness of the services and adjust as necessary;
q Ensure that decisions about the health services are based on proper assessment and surveillance;
q Communicate information about the emergency situation and the health services for advo-
cacy purposes.
156
1
International Covenant on Economic, Social and Cultural rights", 1996, Article 12.

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157
Introduction
1. Good health, depending as it does on so
many non-medical factors, is too big a subject
to be left only to medical workers. This chap-
ter is directed at non-specialist staff in the
field. It does not pretend to give "medical an-
swers" to health problems. It does however
seek to show that proper assessment of prob-
lems, needs and resources, appropriate organ-
ization and coordination of public health and
medical services based on a Primary Health
Care (PHC) strategy are more important to the
overall health status of refugees than curative
medicine alone, see figure 1. These crucial or-
ganizational factors are often the responsibil-
ity of non-medical UNHCR staff.
2. In an emergency, many refugees will be
exposed to insecurity, poor shelter, overcrowd-
ing, lack of sufficient safe water, inadequate
sanitation, inadequate or inappropriate food
supplies and a possible lack of immunity to the
diseases of the new environment. Further-
more, on arrival, refugees may already be in a
debilitated state from disease, malnutrition,
hunger, fatigue, harassment, physical violence
and grief. Poverty, powerlessness and social in-
stability, conditions that often prevail for
refugees, can also contribute to increased sex-
ual violence and spread of sexually transmit-
ted diseases including the Human Immuno-de-
ficiency Virus (HIV).
3. The World Health Organization (WHO)
has summarized the concept of Primary Health
Care as follows: “PHC is essential health care
made accessible to everyone in the country; it
is given in a way acceptable to individuals,
families, and the community, since it requires
their full participation; health care provided at
a cost the community and the country can af-
ford. Though no single model is applicable
everywhere, Primary Health Care should in-
clude the following: promotion of proper nu-
trition, an adequate supply of safe water, basic
sanitation, reproductive and child care, includ-
ing family planning, appropriate treatment for
common diseases and injuries, immunization
against major infectious diseases, prevention
and control of locally endemic diseases, educa-
tion about common health problems and what
can be done to prevent and control them”.
Health Assessment, Planning,
Monitoring and Surveillance
x An assessment of the health and nutritional
status is an essential start to the provision of
health services;
x This must be done by experts with experi-
ence of emergencies and, if possible, local
knowledge;
x The factors affecting the health of the
refugees must be identified and a surveil-
lance and reporting system established.
Initial Assessment
4. First, information should be obtained on
the number of refugees2
segregated by age
(percentage of children under five years of age)
and sex (male/female ratio). See chapter 11 on
At the heart of such a strategy there is an
emphasis on preventive, as against curative
care alone.
2
Health experts sometimes call this number “the denomi-
nator”.
Figure 1

registration for more information on estimat-
ing the total number of refugees.
Age/sex breakdown can be estimated from:
i. Information collected during surveys;
ii. Information collected during mass immu-
nization campaigns;
iii. Mass health screening on arrival;
iv. Information collected by community health
workers.
5. The aim of the initial health assessment
is to identify basic problems and needs and
to establish priorities. It should be carried out
by people with appropriate qualifications and
relevant experience. There are obvious advan-
tages in using national or locally-based per-
sonnel, but appropriate outside expertise
can be made available quickly and should be
requested through the Health and Commu-
nity Development Section at Headquarters if
necessary.
6. The priority should be to evaluate the in-
cidence of the major causes of excess mortality
and morbidity – measles, diarrhoeas, pneumo-
nia, malaria and malnutrition.
7. Relevant information can be obtained
from:
i. Direct observation;
ii. Reviewing baseline information regarding
the country/areas of origin and asylum;
iii. Analyzing records at health facilities and
interviewing health workers;
iv. Undertaking sample surveys (nutrition and
mortality). These must be done by experts;
v. Population estimation and registration (see
chapter 11 on population estimation and
registration);
vi. Mass health and nutrition screening on
arrival. This should focus on: (i) nutrition
screening through visual inspection and
measurement of the Mid Upper Arm
Circumference (“MUAC”), (see chapter 15
on food and nutrition), (ii) checking for
communicable diseases and vaccination
coverage, and (iii) identifying patients in
need of urgent referral. It is usually imprac-
tical to try to provide treatment in the
screening line itself.
8. Figure 2 illustrates key management
considerations for action in light of the initial
assessment.
158

Health14
159
Assess the situation,
including
nutritional status
Major health
problem?
Are causes
understood?
Can health
system and refugees
cope?
Figure 2 – Assessment and Response
Take immediate action
to remove causes
(public health measures)
Control communicable
diseases and
treat refugees
Bring in necessary
outside assistance
Continuous
monitoring
Yes
No
Yes
Organize expert
epidemiological
survey
No
Yes
Summary checklist
1. Evaluate the vital
sectors, e.g. water,
sanitation, shelter, food
2. Have effective health
services been organized
and does surveillance
indicate that they work?
3. Is the referral system in
place and have children
been vaccinated against
measles?
4. Have health care
guidelines been issued
and are they followed?
5. Are drug supplies
appropriate, standardized
and available?
No (to checklist)

Monitoring and Surveillance: The Health
Information System
9. From the earliest stages of an emergency,
a health information system should be put in
place under the responsibility of the UNHCR
Health Coordinator. The health information
system should be simple, reliable, and action
oriented, and its use will be essential to:
i. Quantify the health and nutritional status
of the refugee population;
ii. Follow trends in health status and monitor
the impact and outcomes of the relief pro-
gramme;
iii. Detect epidemics;
iv. Evaluate programme effectiveness and
service coverage;
v. Ensure that resources are targeted to the
areas of greatest needs;
vi. Re-orient the programme as necessary.
10. Annex 1 sets out the tables and forms for
collecting health-related information. How-
ever, to have a more comprehensive idea of
the situation, information regarding water,
food, sanitation, shelter and availability of
soap should also be collected and analyzed
(see the relevant chapters on water, nutrition,
sanitation, and physical planning).
11. The health information system should be
kept simple. The information to be collected
should be adapted to suit the collectors’ quali-
fications. Overly detailed or complex reporting
requirements will result in non-compliance. In
addition, only data that can and will be acted
on should be collected. Communication and
exchange of views among all the actors in the
health information system are essential to
secure the functioning of the system.
12. Health information in the initial stages
of an emergency should concentrate on:
i. Demography (see chapter 11 on registra-
tion, also paragraph 4 above, and table 1
of Annex 1);
ii. Mortality and its causes (see tables 2.1 and
2.2 of Annex 1 and paragraph 14 below);
iii. Nutritional status (see Annexes 4 and 5 of
chapter 15 on food and nutrition);
iv. Morbidity (see below, and table 3.1 of
Annex 1).
13. Only when the situation stabilizes can
the system be made more comprehensive. In-
formation on mortality and morbidity should
be collected as follows:
Mortality
14. Each health facility should keep a log
of all patient deaths with cause of death and
relevant demographic information. This infor-
mation should be summarized in tables 2.1
and 2.2 of Annex 1, reported centrally and
consolidated with other data. Because many
deaths occur outside the health-care system, a
community-based mortality surveillance system
should also be established. Such a system re-
quires identifying sites which people are using
as cemeteries, employing grave watchers on a
24 hours basis, routinely issuing burial
shrouds, and using community informants.
Deaths that occur outside hospitals with un-
known causes should be validated through
verbal autopsy by health workers specifically
trained for this task.
Morbidity
15. Each health facility providing out-patient
services (including clinics for under five’s and
selective feeding programmes) should keep
daily records. These records should be in the
form of a log book or tally sheets at least, and
should at least record the patient’s name, age,
sex, clinical and laboratory diagnosis and
treatment. This information should be sum-
marized in the forms set out as tables 3.1. in
Annex 1 and reported centrally.
16. Diseases recorded in the health informa-
tion system must have a case definition (i.e. a
standard description) which will guide health
workers in their diagnosis and ensure the con-
sistency and validity of data. Where possible,
case definitions that rely on clinical signs and
symptoms (e.g. malaria) should be checked
against a laboratory standard test (e.g. blood
test for malaria).
17. In addition, the patient should be issued
a health record card (or “Road to Health”
card) on which the date, diagnosis, and treat-
ment are recorded. Every contact a patient has
with the health-care system, whether for cura-
tive or preventive services, should be noted on
the health record card retained by the patient.
18. The health information system should be
periodically assessed to determine its accuracy,
completeness, simplicity, flexibility, and timeli-
ness. The way programme planners and key
Only simple arrangements are effective in
emergencies.
160

decision-makers use the information should
also be assessed. The system should evolve as
the need for information changes.
19. Camp and centrally controlled monitor-
ing of health and nutritional status is essential
if problems are to be identified in time to
allow preventive and/or corrective actions to
be taken and to adjust resource allocation.
The refugees’ health status should improve
as public health services start to function
adequately and the refugees adjust to their
new environment.
20. However, a vigilant surveillance system
must be maintained. Seasonal changes will
affect health (for example temperature
changes, and especially the rainy season) so
seasonal variations in the incidence of disease
will remain. The UNHCR Health Coordinator
and her/his counterparts in the government
and other partners will be responsible for the
quality of this surveillance, the data required,
who will interpret it and how to ensure action
on the results and feed-back to all actors.
Mortality
21. The most important and specific indica-
tors of the overall status of the refugee popu-
lation are the Crude Mortality Rate (CMR), for
the whole population and Under-5 Mortality
Rate (U-5MR) for children under five years of
age. These indicators are of crucial importance
to managers of the operation and are also of
great interest to the media, donors and relief
agencies. A priority for the health surveillance
system is to produce reliable information on
death rates.
22. During the emergency phase, mortality
rates should be expressed as deaths/10,000
persons/day so that sudden changes can be
detected.
Crude Mortality Rate is
deaths/10,000/day.
This is calculated as follows:
Number of deaths x 10,000
Number of days x total population
23. The objective of the overall assistance
programme in the emergency phase should
be to achieve CMR of <1/10,000/day and
U-5MR of <2/10,000/day as soon as possible.
These rates still represent approximately twice
the “normal” CMR and U-5MR for non-dis-
placed populations in most developing na-
tions and should not signal a relaxation of
efforts.
24. Age and sex-specific mortality rates have
to be collected systematically and may indicate
the need for targeted interventions. Table 1
below shows some benchmarks against which
the daily Crude Mortality Rate (CMR) can be
compared. Under-5 Mortality Rate benchmarks
are usually twice the CMR.
Morbidity (incidence and types of disease)
25. Knowing the major causes of illness and
the groups at greatest risk helps efficient plan-
ning of intervention strategies and the most
effective use of resources. Morbidity incidence
is the number of new cases of a given disease
among the population over a certain period
of time, usually expressed per 1,000. It is more
useful to follow this than to keep a simple
tally of cases, as trends can be followed over
time, or compared with other situations. Mor-
bidity incidence should be recorded as set out
in Tables 3.1 and 3.2 in Annex 1.
Main Health Programmes
x The main causes of death and diseases in
emergency situations are measles, diar-
rhoeas (including cholera), acute respiratory
infections, malnutrition and malaria (where
prevalent). Priority should be placed on pro-
grammes to reduce the negative impact of
these diseases;
x Other causes of morbidity include tuber-
culosis, meningitis, vector-borne diseases,
sexually transmitted diseases including
HIV/AIDS, pregnancy and obstetric3
compli-
cations, and childhood vaccine-preventable
diseases;
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161
Average rate 0.5
in most developing deaths/10,000/day
countries
Relief programme: <1.0
under control deaths/10,000/day
Relief programme: >1.0
very serious deaths/10,000/day
situation
Emergency: >2.0
out of control deaths/10,000/day
Major catastrophe >5.0
deaths/10,000/day
Table 1 – Crude Mortality Rate Benchmarks
3
Obstetrics: the branch of medicine concerned with child-
birth and the treatment of women before and after child-
birth.

x The emotional stress of displacement, often
compounded by harassment, violence and
grief suffered by the refugees will combine
to deplete their physical and emotional re-
serves and reduce their natural resistance to
diseases;
x Experience underlines the importance of
meeting the reproductive health needs of
refugees, and most particularly of women
and adolescents;
x Early emphasis should be placed on correct-
ing environmental factors which adversely
affect health.
Curative care
26. The peak of curative medical care is at
the early stage, when refugees are most
vulnerable to their new environment with the
health hazards it poses and before it has been
possible to achieve any major public health
improvements. Even though curative care
alone will not meet the objective of reducing
excess loss of lives, it will create confidence
among the refugees towards the health
services.
27. Appropriate diagnosis and treatment
protocols of major diseases must be defined in
accordance with national protocols, if they are
suitable to the refugee context. There may be
some exceptions to this rule, but implemen-
tation of refugee specific protocols should
always be previously agreed upon with natio-
nal authorities.
28. Remember to take into account deaths
occurring outside the health care system. A
commonly documented error, committed by
even excellent clinicians who have become ab-
sorbed in a health facility, is to fail to notice
that cemeteries are being filled by refugees
dying in their shelters, without having been
identified or referred to receive appropriate
curative services.
Immunization
29. Measles has been documented as being
responsible for excess loss of lives, particularly
but not exclusively among children under five
years of age.
UNHCR advocates the immunization of chil-
dren from 6 months up to 12 or even 15 years
(rather than the more usual 5 years) because
of the increased risks from the living condi-
tions in refugee emergencies.
30. The decision as to whether or not to
undertake a measles vaccination campaign at
the onset of an emergency should be the re-
sponsibility of an expert. The campaign
should ideally be associated with, but not de-
layed by, distribution of Vitamin A. The deci-
sion will be based on the vaccination cover-
age reported in the country and area of
origin and its reliability, and whether there
has been a recent epidemic or vaccination
campaign. If there is a need for a measles
vaccination campaign, it should not be
delayed until other vaccines are available,
and it should have appropriate mechanisms
to ensure new arrivals are vaccinated. The
provision of vaccines should be discussed with
UNICEF (see the MOU between UNICEF and
UNHCR, Appendix 3).
31. There are strong reasons, both medical
and organizational, not to have a mass immu-
nization programme with all vaccines. The
most common causes of disease and death in
the emergency phase cannot be cured or pre-
vented by immunizations (except measles).
Mass immunization programmes require a
large number of workers, and vaccines need
careful handling and controlled, refrigerated
conditions. Therefore undertaking such a cam-
paign may represent a misuse of time and
resources in an emergency.
32. As soon as the emergency has stabilized
there should be a complete Expanded Pro-
gramme of Immunization (EPI), which should
form an integral part of the ongoing long-
term health programme. A standard EPI in-
cludes diphtheria, pertusis and tetanus toxoid
(DPT), oral polio (OPV), and BCG (Bacille Cal-
mette-Guerin) vaccines as well as measles.
However, there should not be a vaccination
campaign against any of these (apart from
measles), nor should there be a complete EPI,
unless the following criteria are met: the pop-
ulation is expected to remain stable for at
least 3 months; the operational capacity to
administer vaccine is adequate, and the pro-
gramme can be integrated into the national
immunization programme within a reason-
able length of time (see the MOU between
UNICEF and UNHCR, Appendix 3).
33. It is essential that adequate immuniza-
tion records be kept. At the very minimum,
personal immunization (or “Road to Health”)
Immunization against measles for young
children is the only essential immunization
in the early stages of an emergency.
162

cards should be issued. In addition, an inde-
pendent central register of all immunizations
is desirable, to enable analysis of vaccination
coverage.
Communicable Disease Control
x Emergency conditions, particularly over-
crowding, poor sanitation etc. will facilitate
the spread of communicable diseases;
x The aim is to prevent, detect, control and
treat diseases;
x Refugees are at greatest risk if they are
exposed to a disease against which they
have not acquired immunity (e.g. measles,
malaria etc.);
x Communicable disease outbreaks require
an immediate on-the-spot expert investiga-
tion and close coordination of the response
with the national authorities, WHO and
partners as appropriate.
34. The main causes of death and morbidity
among refugees in emergencies are:
Moreover, the interaction between malnutri-
tion and infection, particularly among young
children, contributes to increased rates of
mortality.
Other communicable diseases – meningococcal
meningitis4
, tuberculosis, sexually transmitted
diseases (STDs), hepatitis, typhoid fever, typhus
and relapsing fever – have also been observed
among refugee populations. However, the
contribution of these illnesses to the overall
burden of disease among refugees has been
relatively small.
Diarrhoeal Diseases
35. Diarrhoeal diseases represent a major
public health problem and acute epidemics of
shigellosis (causing bloody diarrhoea dysen-
tery) and cholera, have become common in
refugee emergencies and have resulted in ex-
cess loss of lives. In risk areas, it is essential to
set up appropriate preventive measures as
soon as possible. These measures include:
i. Adequate supply of potable water and an
appropriate sanitation system;
ii. Provision of soap and education on per-
sonal hygiene and water management;
iii. Promotion of food safety and breast-feed-
ing;
iv. Reinforced home visiting and early case de-
tection;
v. Identification of an area (“cholera man-
agement unit”) to manage patients with
cholera in case an epidemic occurs.
36. It is not possible to predict how a cholera
outbreak will develop. If proper preventive
measures are taken less than 1% of the popu-
lation should be affected. Usually however,
1 to 3% are affected but in extreme cases it
can be more – even as much as 10%.
37. To be prepared to respond quickly to an
outbreak, the above preventive measures
should be accompanied by the establishment
of appropriate protocols on case manage-
ment. These protocols should be based on
National or WHO protocols and should be
founded on rehydration therapy, continued
feeding and appropriate antibiotics (especially
for shigellosis5
). In addition, there should be a
reliable surveillance system for early detection
of cholera cases, to follow trends and deter-
mine the effectiveness of specific interven-
tions.
38. A significant amount of material, finan-
cial and experienced human resources are
likely to be needed to respond to a cholera
outbreak and reduce the case fatality rate.
39. To facilitate an immediate response,
cholera kits can be obtained from the Supply
and Transport Section at Headquarters at
short notice. Each kit can cover the overall
management of some 500 cases. No efficient
vaccine to prevent cholera outbreaks is as yet
available.
Measles
40. WHO has classified refugees and dis-
placed populations, especially in camps, as
groups at highest risk for measles outbreaks.
Indeed, this disease has been devastating in
many refugee situations. Measles vaccination
coverage should be as close as possible to
100%, if not, measures should be taken imme-
diately to control the situation (see the MOU
between UNICEF and UNHCR, Appendix 3,
and paragraphs on immunization above).
i. Measles,
ii. Diarrhoeal diseases,
iii. Acute respiratory infections,
iv. Malaria (where prevalent).
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163
4
See World Health Organization. Control of Epidemic
Meningococcal Disease: WHO Practical Guidelines, 1995.
5
See World Health Organization. Guidelines for the con-
trol of Epidemics due to Shigella Dysenteriae Type 1, 1995.

Malaria
41. Malaria can also pose major problems.
Its appropriate management and control is
also a matter for experts and is based on the
following:
i. Early case detection and appropriate treat-
ment. It may be necessary to study drug re-
sistance;
ii. Preventative treatment (chemoprophy-
laxis) particularly for pregnant women;
iii. Elimination of vector breeding sites;
iv. Vector control, including the distribution
of insecticide-impregnated mosquito nets
and periodic spraying, as indicated.
42. Chemical control measures such as spray-
ing, or impregnated mosquito nets, may seem
quite attractive but should only be taken upon
expert advice as several factors must be consid-
ered such as: the habits of the refugees, sea-
sonal variations, mosquito biting habits, trans-
mission levels, national protocols about chemi-
cals and registered lists of chemicals, and cost.
Please see chapter 17 on environmental sanita-
tion for guidance on vector control.
Acute Respiratory Infections
43. Pneumonia is the acute respiratory infec-
tion that has been documented as a cause for
excess mortality, most particularly in the under
five population. It is therefore essential to
make sure that refugees are provided with
adequate shelter and blankets as soon as
possible. Health staff must be appropriately
trained to diagnose and treat respiratory in-
fections.
44. The more common diseases are outlined
in table 2 below which illustrates the environ-
mental impact on disease and indicates those
improvements in living conditions which will
bear directly on the health of the refugees.
164

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165
Table 2 – Common diseases
Disease Major contributing factors Preventive measures
Diarrhoeal
diseases
Measles
Acute
respiratory
infections
Malaria
Meningococcal
meningitis
Tuberculosis
Typhoid
Worms
especially
hookworms
Scabies6
Xerophthalmia
Vitamin A
deficiency
Anaemia
Tetanus
Hepatitis
STD’s/HIV
Overcrowding, contamination of
water and food
Lack of hygiene
Overcrowding
Low vaccination coverage
Poor housing
Lack of blankets and clothing
Smoke in living area
New environment with a strain to
which the refugees are not immune
Stagnant water which
becomes a breeding area for
mosquitoes
Overcrowding in areas where
disease is endemic (often has local
seasonal pattern)
Overcrowding
Malnutrition
High HIV prevalence
Overcrowding
Poor personal hygiene
Contaminated water supply
Inadequate sanitation
Overcrowding
Poor sanitation
Overcrowding
Poor personal hygiene
Inadequate diet
Following acute prolonged
infections, measles and
diarrhoea
Malaria, hookworm, poor
absorption or insufficient intake of
iron and folate
Injuries to unimmunized
population
Poor obstetrical practice causes
neo-natal tetanus
Lack of hygiene
Contamination of food and water
Loss of social organization
Poor transfusion practices
Lack of information
• adequate living space
• public health education
• distribution of soap
• good personal and food hygiene
• safe water supply and sanitation
• minimum living space standards as defined in chapter
12 on site planning
• immunization of children with distribution of vitamin A.
Immunization from 6 months up to 12-15 years (rather
than the more usual 5 years) is recommended because
of the increased risks from living conditions
• minimum living space standards and
• proper shelter, adequate clothing, sufficient
blankets
• destroying mosquito breeding places, larvae and
adult mosquitoes by spraying. However the success
of vector control is dependent on particular mosquito
habits and local experts must be consulted
• provision of mosquito nets
• drug prophylaxis (e.g. pregnant women according to
national protocols)
• minimum living space standards
• immunization only after expert advice when
surveys suggest necessity
• minimum living space standards (but where it is en-
demic it will remain a problem)
• immunization
• safe water, proper sanitation
• good personal, food and public hygiene and public
health education
WHO does not recommend vaccination as it offers only
low, short-term individual protection and little or no pro-
tection against the spread of the disease
• proper sanitation, good personal hygiene
• wearing shoes
• enough water and soap for washing
• adequate dietary intake of vitamin A. If not available,
provide vitamin A fortified food. If this is not possible,
vitamin A supplements
• immunization against measles. Systematic prophylaxis
for children, every 4 - 6 months
• prevention/treatment of contributory disease
• correction of diet including food fortification
• good first aid
• immunization of pregnant women and subsequent
general immunization within EPI
• training of midwives and clean ligatures, scissors,
razors, etc.
• safe water supply
• effective sanitation
• safe blood transfusions
• test syphilis during pregnancy
• test all blood before transfusion
• ensure adherence to universal precautions
• health education
• availability of condoms
• treat partners
6
Scabies: skin disease caused by burrowing mites

Reproductive Health7
45. Reproductive health care in refugee situ-
ations should be provided by adequately
trained and supervised staff and should be
guided by the following principle:
46. The provision of quality reproductive
health services requires a collaborative effort
by a number of sectors (health, community
services, protection, education) and organi-
zations, which should provide reproductive
health services based on their mandates.
47. While resources should not be diverted
from addressing the problems of the major
killers (measles, diarrhoeal diseases, acute res-
piratory infections and malaria), there are some
aspects of reproductive health which must
also be dealt with in the initial phase of an
emergency. The major objectives of reproduc-
tive health care in an emergency are to:
i. Prevent and manage the consequences of
sexual violence;
ii. Decrease HIV transmission by respecting
universal precautions8
and guaranteeing
the availability of free condoms;
iii. Prevent excess neonatal and maternal mor-
bidity and mortality by providing clean
home delivery kits, ensuring clean and safe
deliveries at health facilities and managing
emergency obstetric complications by es-
tablishing a referral system;
iv. Plan for provision of comprehensive repro-
ductive health services, integrated into Pri-
mary Health Care, as soon as possible;
v. Identify a person responsible to coordinate
reproductive health activities under the
responsibility of the overall health coordi-
nator.
48. As soon as feasible, when the situation
has stabilized, comprehensive reproductive
health services based on the needs of re-
fugees should be put in place. These services
should be integrated within the primary
health care system and should address the
following aspects:
Safe Motherhood
49. This should cover antenatal care, delivery
care and postnatal care. All pregnant women
should receive antenatal care services during
pregnancy. All deliveries should be accompa-
nied by a trained health care provider. A
referral system to manage obstetric emergen-
cies should be put in place. Within the first
4-6 weeks, mothers and their new babies
should visit the health services and receive
nutritional supplements, counselling on child
spacing, and education about breast-feeding
and infant care.
Prevention and Response to Sexual Violence
Please refer to chapter 10 on community ser-
vices.
Sexually Transmitted Diseases including
HIV/AIDS9
50. Experience shows that HIV spreads
fastest in conditions of poverty and social in-
stability – conditions which typify refugee
emergencies. The priority should be on
preventing HIV transmission: ensure there
is respect for universal precautions and work
closely with the community to promote HIV
prevention strategies including condom edu-
cation and distribution. Where blood transfu-
sions are provided, ensure they are safe.
Treatment of sexually transmitted diseases
should be a routine part of the health services
and should include appropriate follow up of
partners.
Mandatory HIV testing in refugee circum-
stances, with the single exception of testing
blood for transfusion, is not justified, and
WHO has determined that, as a matter of
policy, such testing should not be pursued.
Reproductive health care should be avail-
able in all situations and be based on
refugee, particularly women's, needs and
expressed demands. The various religious,
ethical values and cultural backgrounds
of the refugees should be respected, in
conformity with universally recognized
international human rights.
166
7
See: United Nations High Commissioner for Refugees.
An Inter-agency Field Manual on Reproductive Health in
Refugee Situations, 1995.
UNFPA have developed a set of reproductive health kits
which can be used as part of a programme to deal with
reproductive health problems and the Health and Nutrition
Unit or the Supplies and Transport Section at Headquarters
should be contacted for details.
8
“Universal precautions” means procedures and practices
by health workers to limit transmission of disease.
9
United Nations High Commissioner for Refugees,
UNAIDS and WHO. Guidelines for HIV Interventions in
Emergency Settings, 1996.

Family Planning
51. Family planning services should be initi-
ated as soon as feasible. Ensure that the
refugees are informed and understand their
free choice in the matter.
Other Reproductive Health Concerns
52. Women who have complications such as
spontaneous or unsafe abortion should be
cared for by the referral system.
53. Programmes to eradicate harmful tradi-
tional practices including female genital muti-
lation should be implemented once the situa-
tion has stabilized. It is crucial to work closely
with the refugee community in tackling this
issue10
. Culturally appropriate sanitary supplies
should be distributed to women as soon as
possible. Inadequate sanitary protection may
prevent women from collecting material assis-
tance.
Reproductive Health and Young People
54. Health workers should pay particular
attention to meeting the reproductive health
needs of young people as they may be at
greater risk and have more limited access to
appropriate services.
55. It is important to ensure that sufficient
female health workers are trained in reproduc-
tive health in order to provide culturally appro-
priate health services including education in
the community and at the health facilities. At
least some of these health workers should be
recruited from among the refugee community.
Tuberculosis control11
56. The prevalence of Tuberculosis (TB) has
significantly increased in recent years world-
wide, but a TB control programme is not a
priority in the early stages of an emergency
when mortality and malnutrition rates are
very high.
57. Expert advice and involvement of the
National TB control programme (often sup-
ported by WHO) are needed before starting a
TB programme. Bad planning and poor imple-
mentation could result in more harm than
good.
58. To increase the chances of success, TB
programmes should only be started in stable
situations, when Directly Observed Therapy12
can be implemented, when funds, drugs, reli-
able laboratory services and trained staff are
available.
Mental Health13
59. The psychosocial needs of refugees have
often been neglected or even forgotten. How-
ever, health services should aim to promote
the highest standard of both physical and
mental health. It is easy to recognize that
there is a heavy burden placed upon refugees
from, for example, physical violence, grief and
bereavement, fear and stress, an uncertain
future and a sense of powerlessness.
60. Experience in identifying and dealing
with the psychosocial problems of refugees
(including Post Traumatic Stress Disorders) is
limited, even so the following general guid-
ance can be given. Any programme dealing
with mental health must be community-based
with the refugees themselves playing a major
role. The programme must be based on a
solid knowledge and understanding of the
refugees’ cultural background and integrated
with the other services provided to refugees,
and, from the outset, its long term sustainabil-
ity must be ensured.
Capacity building
Health Education
61. The importance of health education is
widely recognized. However, there are signifi-
cant difficulties in persuading those most at
risk to change long-established habits.
62. Health education should therefore focus
on the disposal of human excreta and refuse,
water management and personal hygiene.
Many governments and organizations pro-
duce simple health education materials that
may be useful. Trained refugee teachers and
respected elders are likely to be more effective
In the emergency phase, the priority topics
should be those directly related to the im-
mediate public health problems.
Health14
167
10
See IOM/FOM (83/97; 90/97), Policies on Harmful Tradi-
tional Practices, UNHCR, 1997.
11
World Health Organization and United Nations High
Commissioner for Refugees. Guidelines for Tuberculosis
Control in Refugees and Displaced Populations, 1996.
12
Directly Observed Therapy is where the health worker is
able to observe the treatment including that the medica-
tion is taken correctly.
13
World Health Organization and United Nations High
Commissioner for Refugees. Manual of Mental Health of
Refugees, 1996.

than outsiders in communicating the basic
principles and practices of health to their own
people. At a later stage, information, educa-
tion and communication should also be a
major tool for the prevention and reduction
of sexually transmitted diseases including HIV.
Training
63. As suggested by the definition of “emer-
gency”, extraordinary mobilization of re-
sources, including human, will be needed to
cope with the situation. Annex 2 sets out a
suggested structure of the health service and
numbers and qualifications of staff needed.
Full staff support including community health
workers, and health workers, doctors and
nurses at health centres, health posts and
clinics, with the necessary qualifications and
experience, will not be instantly available.
64. Training activities must be well targeted
to meet the objective of the programme, and
this is dependent on definition of roles and re-
sponsibilities among various levels of health
care and identifying the necessary qualifica-
tions. Training must be part of the main
health programme.
Medical supplies
65. There must be a policy on essential
drugs. The aim of the policy will be to ensure
a supply of safe, effective and affordable
drugs to meet priority needs of the refugees.
The Health and Community Development
Section and the Supply and Transport Section
at Headquarters issued an essential drugs
list which is used to order drugs for UNHCR
operations.
66. In order to foster the appropriate use of
drugs, standard treatment protocols should be
established. This will help rationalize prescrip-
tion habits among the various partners and
organize training activities. Protocols are usu-
ally based on national standards.
67. In the early stage of an emergency, it is
often useful to resort to pre-packaged emer-
gency health kits. The best known is the New
Emergency Health Kit which has been devel-
oped through collaboration among many
agencies (WHO, UNICEF, MSF, ICRC, UNHCR
and others). The contents of the kit are in-
tended to cover the needs of 10,000 people
for 3 months during an emergency. The kit
can be obtained at short notice through the
Supply and Transport Section at Headquarters
and can be used at the community level of
health care and at health centres. The emer-
gency health kit should only be used in the
early stage of an emergency and not relied on
for longer term needs.
68. As soon as possible, arrangements should
be made for a regular supply of appropriate
quantities of essential drugs from the UNHCR
essential drugs list. The requests should be
based on epidemiological surveillance and
disease patterns. The Supply and Transport
Section can also provide support for the pur-
chase of drugs and their transport to the field.
69. It is of utmost importance to establish a
system to monitor drug consumption. In major
operations, a full time pharmacist may be
needed to work with UNHCR. Over-prescrip-
tion of medicines by health workers following
pressure by refugees is not uncommon in
refugee emergencies.
70. Donations of unsolicited drugs are often
a problem during emergencies. A number of
agencies (UNDP, UNHCR UNICEF, WHO, MSF
and others) have jointly developed guidelines
on drug donations14
that provide donors and
users with a list of drugs and supplies which
can be sent to emergency situations. This is to
help ensure that personnel in the field do not
waste time sorting out “useless” donations
(small quantities of mixed drugs, free samples,
expired medicines, inappropriate vaccines,
and drugs identified only by brand names or
in an unfamiliar language). UNHCR’s policy is
that overseas medical supplies should be sent
only in response to a specific request or after
expert clearance. The WHO Representative,
local diplomatic missions and all others con-
cerned should be briefed accordingly.
Laboratory Services
71. Refugees are often remote from labora-
tory facilities. However, very simple laboratory
services at the site level are usually adequate.
72. Reference laboratory services are re-
quired for epidemic management and control,
(e.g., meningitis, shigellosis, cholera, hemor-
ragic and relapsing fevers, high malarial en-
demicity, hepatitis etc.) to confirm/clarify diag-
nosis and perform antibiotic sensitivity. This
should be discussed with the national autho-
rities and WHO. Where blood transfusions
Training will therefore be a cornerstone of
an effective health and relief programme.
168
14
WHO, Guidelines for Drug Donations, May 1996.

are provided, laboratory services will be
absolutely essential to test all blood for HIV
before transfusion.
Organization of Refugee Health Care
x There is no single model for organizing
health services in refugee situations, but it is
usually structured on three levels: commu-
nity health posts and clinics, health centres,
and referral hospitals;
x It is of the utmost importance to ensure
good communication and feed-back be-
tween the various levels of health care;
x Priority should be given to using host coun-
try health facilities as referral centres and
support should be agreed upon and pro-
vided to the facilities (see MOU between
WHO and UNHCR, Appendix 3).
Introduction
73. The three levels of health care are sum-
marized in Annex 2. The first level is at the
community level with health posts, clinics and
outreach services. At the second level is a
health centre with basic facilities for out and
in-patients departments, dressing and injec-
tions, a pharmacy, and a basic laboratory. At
the third level is a referral hospital for emer-
gency obstetric care and surgery, manage-
ment of very complicated cases, performance
of laboratory tests etc. Referral hospitals are
usually national facilities at the district, re-
gional or national level.
74. The refugees must have easy access to
appropriate treatment. If the local national
health facilities cannot be strengthened to
meet the needs, alternative arrangements will
be required. Unless treatment is provided at
the right level, the hospitals or health centres
will be swamped by refugees demanding
treatment for simple conditions. Thus, a com-
munity-based health service is required that
both identifies those in need of health care
and ensures that this is provided at the appro-
priate level. Close coordination with commu-
nity services is essential.
Community Level Health Care
75. Whether refugees are in camps or spon-
taneously settled among local villages, com-
munity level services are essential.
76. This means basic health care is to be de-
livered at the community level in a decentral-
ized manner with two components: (i) a pe-
ripheral clinic/health post and (ii) outreach
services delivered by Community Health Work-
ers (CHWs) and Traditional Birth Attendants
(TBAs). TBAs might be recruited among tradi-
tional midwives in the community. In order to
be effective, CHWs and TBAs must be trained,
supported and closely supervised. The role of
CHWs and TBAs includes:
i. home visiting, identification and referral of
sick people and malnourished children;
ii. identification of pregnant women and re-
ferral for antenatal, delivery and post natal
care;
iii. basic health education;
iv. data-gathering for the health information
system (deaths and their causes and the in-
cidence of major communicable diseases);
v. responding to the needs of refugees who
have been sexually assaulted.
As a guide, 1 CHW per 1,000 population and
1 TBA per 3,000 population should be the
goal. Ideally, 50% of those trained should be
women as same sex care is often preferred.
77. The clinic or health post will cater
for the needs of approximately 5,000 refugees
in crowded conditions but otherwise in rea-
sonably good health. This should be a simple
building with facilities for consultation, basic
curative care (drugs from the New Emergency
Health Kit), oral rehydration therapy, clinical
procedures such as dressings (but not injec-
tions because of the risks of HIV transmission),
a small lock-up pharmacy, simple equipment
and sterilization facilities (electricity may not
be available), data collection (log books to
record patients and activities). Water and sani-
tation are essential in all health facilities.
The Health Centre
78. In support of the clinics/health posts,
there should be a health centre for each
refugee settlement (approximately 10,000 to
20,000 people). Very large settlements may
require more than one. The health centre
should be able to handle all but the most
complicated medical, obstetric and surgical
cases. More facilities should be available than
at the clinics, including basic laboratory serv-
ices, a central pharmacy and some beds for in-
patients, in the range of one per 2,000 to
5,000 refugees. The health centre should
Community-level health care must be the
mainstay of health services from the very
beginning of the emergency.
Health14
169

collect and consolidate health information
from the various clinics and health posts.
The health centre should also organize the
main health programmes (EPI, reproductive
health, tuberculosis) and the supervision and
training of staff (at both first and second
level).
79. An indication of the number and qualifi-
cations of health staff required is given in
Annex 2.
Referral Services
80. The health centre must be able to refer
patients to hospitals for treatment. Referral
hospitals should provide emergency obstetric
and surgical care, treatment for severe diseases,
laboratory and x-ray services as well as supply
and support for nationally controlled pro-
grammes (TB, leprosy, HIV/AIDS).
81. Only a small proportion of patients will
require referral services. These services will
usually be organized in national health facili-
ties at the district, regional or national level,
and ideally, referral should be made to the
nearest national hospital. This has obvious
advantages, not least the fact that the infra-
structure already exists.
82. The hospital(s) should be expanded or
supported as necessary, for example with tents
and additional health personnel as well as
some financial and/or material support (drugs,
supplies, food). Care must be taken not to
swamp the local hospital. Close and direct co-
ordination with the district or regional med-
ical officer is essential.
83. An agreement should be signed be-
tween the parties, under the aegis of the Min-
istry of Health, which clarifies the conditions
of assistance including cost per patient per
treatment and in kind support (food and
drugs). A written agreement is essential to
avoid controversies.
84. It is only in certain circumstances that
special refugee hospitals will need to be estab-
lished, but generally this should be avoided.
They should only be established when the
needs cannot be met by existing or strength-
ened national hospitals, for example when
refugee numbers are very large (much larger
than the local population), when the nearest
national hospitals are too far away, or for
security reasons. The Supply and Transport
Section and the Health and Community Devel-
opment Section should be consulted prior to
establishing or acquiring refugee specific field
hospitals.
85. Whatever arrangements are made for
hospital treatment and referral, there must be
suitable transport to and from the referral
hospitals. Facilities at the hospital must also
provide for the needs of relatives and allow
parents to be with young children.
86. Arrangements for referral must be such
that only those patients specifically referred
from the health centres are attended, with no
refugees presenting themselves directly to the
hospital.
87. Refugee emergencies are not usually
characterized by large numbers of injured per-
sons. However, when this is the case, there
may be an initial requirement for the rapid
deployment of a surgical unit which is normally
quickly available. Pre-packaged (expensive)
surgical kits can be obtained through Supply
and Transport Section at short notice.
88. The UNHCR Health Coordinator should
ensure that there is a system to record refer-
rals and subsequent treatment and follow-up
of the patients.
Human Resources and Coordination
x The health services must be developed with
and not just for the refugees and in accor-
dance with their needs and demands;
x The early appointment of a suitably experi-
enced health coordinator to UNHCR’s staff
has proved essential. A reproductive health
focal point should also be identified as early
as possible;
x While the use and development of local ex-
pertise is preferable, it is often necessary to
mobilize outside assistance in an emergency;
x The issue of staff salary and incentives should
be discussed and solved from the outset;
x The Ministry of Health at all levels must be
as closely involved as possible.
The Refugees
89. The refugees must be given responsibility
for their own health. Outside health workers
must understand the refugees‘ own concepts
of health and disease. From the beginning,
health services should be developed and oper-
ated with, rather than for, the refugees. If not,
The programme should compensate the
national referral structures for services pro-
vided to refugees.
170

the services will be less effective, may be dis-
trusted and poorly used, and are unlikely to be
sustainable.
90. Preventive services should always be
free. In most situations, other health services
are also offered free of charge. While this may
well be justified, it should not be considered
as a policy as it is often based on paternalistic
attitudes. The issue of cost-recovery or pay-
ment for services should be regularly analyzed
and most particularly when refugees are inte-
grated within the local population (which may
have to pay for services) or when refugees are
benefiting from local integration and sources
of income.
Staffing Needs
91. As a general principle, the order of pref-
erence for selecting health personnel, in coop-
eration with the national authorities, is:
i. Refugees;
ii. Experienced nationals or residents;
iii. Outsiders.
Most emergencies will require some combina-
tion of these sources.
92. Strong emphasis should be placed on the
training, supervision and upgrading of med-
ical skills of selected refugees, particularly in
their former roles within the community.
When selecting refugees, care must be taken
to include women who may not come forward
as readily as men. Full account should be
taken of the experience of the traditional
healers and midwives. Refugees may seek
traditional treatments and experience has
demonstrated the advantages of encouraging
traditional methods of health care which com-
plement other organized health services.
93. An important consideration may be
the government’s attitude to foreign medical
personnel, including, for example, recognized
qualifications and permission to practice medi-
cine.
94. The issue of staff salary and incentives
should be addressed at the onset. All agencies
and organizations involved in the refugee
programme should adhere to the same stan-
dards. The determination of salaries and in-
centives should be based on the national (or
country of origin) standards and due account
should be taken of assistance (free food, wa-
ter, shelter etc.) received by refugees. In princi-
ple, all staff performing work on a daily basis,
with clearly identified responsibilities and
strict working hours, should receive a salary or
an incentive.
95. Special attention should be given to the
recruitment of local staff. The salary or incen-
tive offered to them should be in line with
national standards. Very frequently, refugee
emergencies attract national personnel (com-
monly referred to as “brain drain”) at the
expense of national services which can create
serious tension.
The National Health Authorities
96. Early involvement of the host govern-
ment’s central, provincial, and district health
services is essential. To the extent possible,
services provided to refugees should be inte-
grated with national services. It will be partic-
ularly important to ensure integration and
compatibility with certain treatment proto-
cols, immunization programmes, communica-
ble disease control and surveillance practices.
Promoting good health for the refugees is
clearly in the interest of the local population.
In addition, supporting existing structures will
help ensure that health services for refugees
are sustainable and are at a standard equiva-
lent to that of the host country nationals.
UNHCR Health Coordinator
97. In major emergencies, (e.g. when there is
a prevalence of epidemics, many partners,
large numbers involved) UNHCR must ensure
that a Refugee Health Coordinator is appoin-
ted. The Health Coordinator should be a key
member of the UNHCR programme staff. The
person should take the lead role in this sector,
or play a key supporting role to the national
institution which takes the lead role.
98. The Health Co-ordinator’s primary re-
sponsibility will be to ensure that the level and
quality of services provided adhere to nation-
ally and internationally accepted standards
and medical ethics.
Other main tasks and duties include:
i. Participating and facilitating the consulta-
tion process among all concerned parties
in order to carry out an appropriate prob-
lem, needs and resources assessment;
ii. Participating in, and facilitating the cre-
ation of, health and nutrition committees
with the Ministry of Health, other UN
agencies and non-governmental organiza-
tions (NGOs) where coordination will take
Health14
171

place to jointly identify priority activities,
and to plan for their implementation by
defining needed human, material and
financial resources;
iii. Facilitating cooperation among all part-
ners to ensure an appropriate implemen-
tation and monitoring of the programme
as agreed upon at the coordination com-
mittee meetings;
iv. Setting up and participating in the imple-
mentation of an effective Health Informa-
tion System;
v. Ensuring that joint protocols for medical
treatment, staffing and training are estab-
lished and that implementing partners ad-
here to them;
vi. Ensuring the identification of a qualified
and experienced person to coordinate re-
productive health activities at the start of
the relief programme;
vii. Facilitating inter-sectoral coordination;
viii.Consolidate the reporting about the
refugees’ health and nutritional status;
ix. Assisting in setting up a medical evacua-
tion plan for UNHCR staff.
99. Experience shows that it is in the first
days and weeks of an emergency that excess
mortality is recorded.
100. The quickest and most practical way to
deploy a Health Coordinator is usually to send
UNHCR staff or consultants. Headquarters
should be consulted immediately on this. At
a later stage, posts can be created or staff
seconded from other UN agencies (UNICEF or
WHO), or from the Ministry of Health.
Other Specialized Staff
101. The need for specialized staff should
be carefully assessed by the UNHCR Health
Coordinator or by the Health and Community
Development Section at Headquarters. Such
specialists include epidemiologists, specialists
in public, reproductive and mental health,
nutrition, tropical medicine, paediatrics, mid-
wifery, pharmacy etc.
102. Familiarity with the local culture, pat-
terns of disease and the public health services
and previous experience in emergencies are
as important as an advanced knowledge of
medicine and medical techniques.
Role of the UN and Specialized Agencies
103. WHO. The World Health Organization
works directly with the Ministry of Health in
almost every country in the world. The re-
sponse to the health needs of the refugees
and surrounding local populations should be
closely coordinated with WHO. Details of
this collaboration are described in the WHO
and UNHCR Memorandum of Understanding,
Appendix 3.
104. UNICEF. Collaboration with UNICEF in
emergencies will focus on supply of measles
vaccines and delivery/midwifery kits, as well
as on health education (see Memorandum of
Understanding between UNICEF and UNHCR
for more details, Appendix 3)
105. UNFPA. Collaboration with UNFPA fo-
cuses on reproductive health matters and
demography and there is a Memorandum of
Understanding between UNFPA and UNHCR
which details this collaboration, Appendix 3.
106. UNAIDS. UNAIDS is an inter-agency me-
chanism created in 1995 to support national
HIV/AIDS programmes. Refugee health ser-
vices must be integrated in these national
programmes.
107. Through a standby arrangement with
UNHCR, the Centre for Disease Control and
Prevention (CDC Atlanta, USA) can supply,
at short notice, experts for rapid health
and nutritional assessment, improvement of
epidemic preparedness and response in emer-
gencies and set up Health Information
Systems. Deployments are usually limited
from four to eight weeks and can be
arranged upon request through the Health
and Community Development Section at
Headquarters.
Role of NGOs
108. Operational and implementing part-
ners are essential collaborators for UNHCR. All
collaborators in the emergency health pro-
gramme must be brought together to form
health sub-committees at the central and field
level as appropriate. Initially, these commit-
tees may have to meet daily or at least weekly,
usually under the chairpersonship of a repre-
sentative of the Ministry of Health, supported
Experienced personnel with the right per-
sonality are more important than highly
trained specialists, whose skills are often
inappropriate.
It is therefore vital that a UNHCR Health
Coordinator is fielded immediately, at the
very start of the emergency.
172

by the UNHCR Health Coordinator. Ideally,
members of the committee should have been
identified at the contingency planning stage.
109. Activities of the health sub-committee
include: allocation of tasks, exchange and
pooling of information on health activities
and with other sectors (e.g. food, water, sani-
tation etc.), setting up jointly agreed protocols
for medical procedures, staffing levels and
training, and problem-solving in general.
110. In emergencies, urgent outside assis-
tance in the health sector is almost invariably
necessary. This is because the immediate and
specialized attention needed represents a bur-
den that existing local structures are not
designed to bear. District health services will
almost never have the needed reserve capac-
ity in terms of staff at all levels, infrastructure,
medical supplies and technical expertise. This
capacity can be developed over time, with the
support from the central government and
other UN agencies.
111. NGOs (international, regional or natio-
nal) must be chosen with care and this is usually
done by the government of the country of asy-
lum. However, it is also the responsibility of
UNHCR to advise the government on which or-
ganizations have proven competence in emer-
gencies. Some agencies have experience in
long-term situations but less in emergencies;
others may be too narrow in focus, preferring
to do purely curative work to the exclusion of
public health, prevention, sanitation etc.
112. Small NGOs, especially those created in
response to a specific situation, should first
demonstrate appropriate competence before
being engaged in the emergency phase.
The number of agencies involved should be
kept to a minimum.
113. During the early stages of an emergency it
is essential that the numbers of NGOs involved
should be kept to the minimum necessary, and
that those chosen should be professional, capa-
ble of deploying experienced personnel and with
proven past experience in collaborating with
both governments and UNHCR in the effective
management of an emergency.
114. A possible hierarchy of health services is
outlined in Annex 2. It is based on a large-
scale emergency involving a great number of
health staff, both national and international.
A smaller emergency will require fewer levels
of organization. Note that the numbers and
qualification of staff suggested is no more
than an indication. Actual needs will depend
on the health problems, the degree of isola-
tion of the area and so on.
115. Once the pattern of disease and overall
needs have been determined, situation-specific
guidelines on standard procedures for health
workers should be prepared, based on natio-
nal or internationally recognized standards.
These should cover all aspects of the services,
including such subjects as basic principles, how
the services are to be organized, including any
selective feeding programmes, standardized
treatment protocols, drug lists and supply,
vaccination and reporting. The guidelines
should be prepared by the UNHCR Health
Coordinator in consultation with all con-
cerned, issued under the aegis of the Ministry
of Health if possible, and reviewed periodi-
cally, for example by a health coordination
sub-committee. At least part of the guidelines
should be translated into the language of the
community health workers.
All organizations providing health care to
the refugees should be involved in the
preparation and required to observe stan-
dard guidelines.
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173

Key References
An Inter-agency Field Manual on Reproductive
Health in Refugee Situations, 1995. United Na-
tions High Commissioner for Refugees, Geneva.
To be updated in 1999.
Essential Drugs Manual: Guidelines for the Use
of Drugs in Refugee Settings and UNHCR List of
Essential Drugs, Geneva, 1989.
Famine-affected, Refugee, and Displaced Popu-
lations: Recommendations for Public Health Is-
sues, July 24,1992/Vol.41/No. RR-13. The Centers
for Disease Control, (CDC).
Guidelines for Tuberculosis Control in Refugees
and Displaced Populations, 1996 World Health
Organization and United Nations High Commis-
sioner for Refugees.
Guidelines for HIV Interventions in Emergency
Settings, 1996 United Nations High Commis-
sioner for Refugees, UNAIDS and WHO, Geneva.
Manual of Mental Health of Refugees, 1996
World Health Organization and United Nations
High Commissioner for Refugees.
Sexual Violence against Refugees, Guidelines on
Prevention and Response, 1995 United Nations
High Commissioner for Refugees, Geneva.
UNHCR, IOM/FOM (83/97; 90/97), Policies on
Harmful Traditional Practices, 1997 United Na-
tions High Commissioner for Refugees, Geneva.
Vector and Pest Control in Refugee Situations,
April, 1997 United Nations High Commissioner
for Refugees, Geneva.
174

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In the early stages of an emergency it is essential to collect information on a weekly or monthly
basis for the following tables:
Table Number Table Description
1 Demographic information
2.1 A and B, 2.2 Crude Mortality Rate and Under five years old Mortality Rate
Cause-specific-mortality
3.1 Morbidity Incidence
4.1 and 4.2 (set out in Annexes 4 Nutrition, Supplementary and Therapeutic Feeding Programmes
and 5 of chapter 15 on nutrition)
5.2 Main causes of discharge/deaths in In-Patients Departments
7.1 Deliveries: Birth (Total births and birth rate only)
7.4 Cholera/Meningitis/Hepatitis/Micro-nutrients deficiencies
Collection of the information required for the other tables should be progressively introduced as
the situation stabilizes.
In order to detect problems and to monitor the impact of any health programme, it is necessary to
collect information over time so as to follow trends. The tables below are designed to allow tabula-
tion of information on a weekly or monthly basis. Graphical presentation of the same information
will make it easier to detect trends. The tables may need to be adjusted to reflect the needs of ac-
tual situations.
1. Demographic Information
Annex 1 – Health Information System
Table 1 – Population
Sources of demographic information: registration ❏, Estimate ❏, Government ❏, Other ❏
% of total population which is under 5 =
% of total population which is female =
Note: demographic information does not necessarily have to be reported in a table format. The de-
nominator used for calculation of rates could differ from the official working figure and this should
be clarified.
Camp/area Male Female Male Female Total
Names under 5 years under 5 years over 5 years over 5 years Population
Total

176
A. Crude Mortality Rate: CMR
Table 2.1 A
Camp/area Male Female Total
Names
Number Death Number Death Number Death
of deaths Rate of deaths Rate of deaths Rate
Total
Camp/area Male Female Total
Names
Number Death Number Death Number Death
of deaths Rate of deaths Rate of deaths Rate
Total
B. Under five years old mortality rates (U-5 MR)
Table 2.1 B
2. Mortality
2.1 Mortality rates
Mortality rates (segregated by age and sex) should be given per 10,000 per day
Female / Male ratio:
A graph line (to show trends) for CMR and U-5 MR could be attached.

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Male Female Total
Number % of the total Number % of the total Number % of the total
of deaths number of deaths number of deaths number
of deaths of deaths of deaths
Malaria
Pneumonia
Watery
diarrhoea
Bloody
diarrhoea
Measles
Meningitis
Cholera
Maternal
death (2.2 A only)
Peri/neo
natal
Malnutrition
Total 100% 100% 100%
Male Female Total
Malaria
Pneumonia
Watery diarrhoea
Bloody diarrhoea
Measles
Meningitis
STDs
2.2 Cause-specific mortality
Tables 2.2 (2.2 A for total population and 2.2 B for under-five population).
From table 2.2 A and 2.2 B, pie charts could be attached to the report.
The list of diseases is provided as an indication.
The list of diseases is provided as an indication.
Comments on mortality:
3. Morbidity
3.1 Incidence (Number of new cases per 1,000 of the population for the period)
Tables 3.1 (3.1A for total population and 3.1B for under-five population).

178
Camp Names Male Female Total
Average
3.2 Out-Patient Department (OPD) consultations
Table 3.2 Number of consultations per refugee per year.*
* from the total number of OPD consultations per camp, extrapolate to define the number of con-
sultations per refugee per year. As an example: 10,000 consultations in one month in a camp of
30,000. 10,000 x 12 = 120,000 / 30,000 = 4 consultations/refugee/year.
Comments on morbidity:
4. Nutrition
4.1 Supplementary Feeding Programme Monthly Report
This table is contained in Annex 4 of chapter 15 on nutrition.
4.2 Therapeutic Feeding Programme Monthly Report
This table is contained in Annex 5 of the chapter 15 on nutrition.
4.3 Food basket monitoring
See chapter 15 on food and nutrition.
If undertaken, please specify by whom and the results.
Comments on nutrition:

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5. In-Patients Department (IPD) activities
5.1 Activities
Table 5.1 (per week or month)
Hospital Hospital Hospital
Name Name Name
A. No. of patients end
last week/month
B. No of patients
admitted
C. No. of patients end
week/month (A+B-D)
D. No. Discharged
of which:
D.1 authorized %
D.2 unauthorized %
D.3 deaths %
D.4 transferred %
No. of beds
Average length
of stay (No. of days)
Occupancy rate %
5.2 Main Causes of discharge/deaths in IPDs
Table 5.2 (per week or month).
Hospital Name: Hospital Name: Hospital Name:
Number Number Number Number Number Number
of cases of deaths of cases of deaths of cases of deaths
Malaria
Pneumonia
Watery
diarrhoea
Bloody
diarrhoea
Meningitis
Measles
Comments on IPDs:

180
6. Referral system
6.1 Total number of patients transferred for admission and where:
6.2 Causes of transfer
Table 6.2
7. Main Health Programmes
7.1 Reproductive Health
7.1.1 Safe motherhood
a. Deliveries: Birth
Table 7.1.1
Camp Name: Camp Name: Camp Name:
Number % of the Number % of the Number % of the
of cases total of cases total of cases total
Obstetrics
Surgery
Paediatrics
Internal
medicine
Blood
transfusion
Total
Comments:
Camp names Number Crude Birth Rate*
Total A:
a1 + a2 + a3
*Crude Birth Rate = Number of births in a year
x 1,000
Total population
• a1: total # and % of birth in health centre or hospital:
• a2: total # and % of birth assisted by a Trained Birth Attendant (but outside health centre
or hospital):
• a3: total # and % of other births (i.e. A - (a1 + a2):
• total number and % of complicated deliveries:
• total # of cases of neonatal tetanus:
• total # and % of deliveries with adequate Tetanus Toxoid (TT) coverage:

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b. Ante-natal care (ANC)
• total # of expected pregnancies per year:
• total # of new ANC consultations (last 3 months) and % compared to expected:
• % of women with three ANC visits at delivery:
• are supplements given to pregnant women? specify criteria and supplements provided:
• RPR test (syphilis test): % of positive tests:
c. Other information
• maternal mortality: # and incidence per 100,000 live birth per year:
• Peri/neonatal mortality: # and incidence per 1,000 live birth per year:
• # of abortions and % per number of pregnancies:
• low birth weight (below 2.5 kg): provide # and percentage per total number of births:
• # and percentage of total number of births having a post-natal consultation:
7.1.2 Sexual and gender based violence
• # of cases of sexual and gender based violence per month (incidence per 10,000):
• is there any special programme for Female Genital Mutilation (where prevalent)? if yes,
give brief description:
7.1.3 STDs including HIV / AIDS
• enforcement of universal precautions:
• % of blood tested for HIV before transfusion:
• % of HIV positive among blood tested:
• distribution of condoms, # and percentage of acceptance:
7.1.4 Family Planning (every three months)
• number of new acceptors in last three months, per method:
• total # and % of acceptors per method:
7.1.5 Adolescents
Is there any special programme for adolescents? if yes, give a brief description:
Comments on reproductive health:
7.2 Extended Programme of Immunizations (EPI)
• measles vaccination coverage:
• other antigens coverage:
• are there any vaccine preventable diseases prevalent in the camps?:
• comments:

182
7.3 Tuberculosis (every three months and not usually during the emergency phase)
• expected number of new cases per year (i.e. prevalence in country of origin):
• treatment protocols:
Table 7.3
January-March April-June July-September October-Dec.
A. No. under treatment
at beginning
B. No. of new cases
C. No. of discharged
of which:
C.1 cured %
C.2 defaulters %
C.3 deaths %
C.4 transferred %
Total at end of period:
A + B - C
7.4 Cholera/Meningitis/Hepatitis/Micronutrients deficiencies etc.
On daily, weekly and/or monthly basis: number of cases, number of deaths and attack rate (cumula-
tive) and Case Fatality Rate (cumulative). Graphic representation could be attached to the report.
7.5 Mental health
Provide a description of the mental health programme.
7.6 Training activities
Provide a description of training activities which have taken place during the reporting period: type
of training, by whom, to whom, etc.
7.7 Laboratory activities
8 Information on other vital sectors
• availability of potable water: # litres per person per day
• availability of functioning latrines per # of persons
• % of population with adequate shelter
• quantity of soap available per person per month
• specify vector control activities

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Annex 2 – Possible organisation of health services in a major emergencyUnit/LocationLevelHealthstaffOutlineofmajorresponsibilities
3rd
level
2nd
level
1st
level
•HealthCoordinatingcommittee
withallpartners,thismaybe
decentralisedasappropriate
•RefugeeHealthUnit(with
MinistryofHealthifpossibleor
aspartofUNHCRprogramme
team)
Regional/districtHospital
HealthCentre(withlimitedbeds
forovernightstay,asguidance:
1bedper2,000to5,000refugees)
1healthpostorclinic
Thecommunity
Capital/NationalLevel
Regionalordistrictlevel
Eachrefugeesettlement
ofabout30,000
Sectionlevelapproximately
5,000refugees
Outreachservices(organizedby
sectionof,say1Community
HealthWorkerper1,000and
1traditionalbirthattendantper
3,000refugees)
•Planningandmonitoringpro-
grammes
•Preparationanddisseminationof
guidelinesonstandardprocedures
•Overallcoordinationandsupervision
•Procurementandsupplyofdrugsand
equipment
•Complicatedobstetriccasesand
surgicalemergenciesonreferralfrom
settlement
•Referencelaboratory
•Supervisionofsettlementhealth
servicesincludingtraininghealth
workersandanyselectivefeeding
programmes
•Treatmentofpatientsnothandled
at1st
level
•Security,distributionanduseofdrugs
•Basiclaboratory
•Referraltothirdlevel
•Sectionlevelservices,bothpreventa-
tiveandbasiccurativecare
•Supervisionofoutreachservices
•Identificationofpublicand
individualhealthandnutritional
problems
•Referringsickpatientstohealthpost
•Homevisiting
•Basicsurveillanceofmortalityand
birth
•UNHCRHealthCoordinatoror
Healthprofessionals,
Nutritionist,Pharmacist,Health
Administrator
•Ifnecessary:say,1doctor,
2nursestohelpexistingstaff
(plusmaterialsupportif
required,especiallyfoodand
drugs)
•Costperpatientorpertreat-
mentcouldalsobenegotiated
withthehospital
•Asguidance:2doctors,6-8
nurses,1midwife
•About10healthworkers
(1healthworkerper50-70
consultationsperday)
•Asguidance,1nurse(from
above)and2-3refugeeor
nationalhealthworkersper
section
•RefugeeCommunityHealth
Workers

Overview
Organization of Food Support 8-22 187-191
WFP/UNHCR Co-operation
Joint Assessment and Planning
Coordination
Role of Refugees and Nutrition Education
Cooking Fuel
Nutritional Assessments 23-34 191-192
Introduction
Recognizing and Measuring Malnutrition
Moderate and Severe Malnutrition
General Feeding Programme 35-48 193-194
Response to Food and Nutritional Needs
General Ration
Food Distribution
Monitoring the General Feeding Programme
Selective Feeding Programmes 49-79 194-200
General Principles of Selective Feeding Programmes
Supplementary Feeding Programmes (SFP)
Therapeutic Feeding Programmes (TFP)
Starting a Selective Feeding Programme
Identifying Those Eligible
Planning and Organizing a Selective Feeding Programme
Monitoring a Selective Feeding Programme
Criteria for Closing Programmes
Infant Feeding and Milk Products 80-81 200
Key References 200
Glossary 201
Annexes
Annex 1: Basic Facts about Food and Nutrition 202-204
Annex 2: Examples of Food Rations 205
Annex 3: Main Nutritional Deficiency Disorders in Emergencies 206
Annex 4: Reporting Format for Supplementary Feeding Programme 207
Annex 5: Reporting Format for Therapeutic Feeding Programme 208
Annex 6: Nutrition Survey Reporting Form 209
Figures and Tables
Figure 1: The Complex Causes of Malnutrition 187
Figure 2: Response to Food and Nutritional Needs 194
Figure 3: Framework: Selective Feeding Programmes 196
Figure 4: Admission and Discharge Criteria 198
Table 1: Key Nutritional Indicators 192
Table 2: Types of Selective Feeding Programmes 197
Table 3: Organization of Selective Feeding Programmes 198
Table 4: Projected Breakdown by Age 199
FoodandNutrition15
185

Situation
In emergencies, food and nutritional security is often severely threatened. This causes increased
risk of malnutrition, disease and death. Therefore, refugees will need partial or full food sup-
port. Some may also need nutritional rehabilitation.
Objective
To provide the refugees with sufficient quantities of appropriate food to maintain their health
and nutritional status and, where necessary, to improve the condition of those who are already
malnourished.
q Measures to meet food needs should be appropriate and standardized, with responsibilities
clearly defined, and the overall co-ordination ensured by a single organization;
q Whenever possible use familiar foods that meet nutritional requirements and maintain sound
traditional food habits;
q The food distribution system should allow families to prepare their own meals;
q Pay particular attention to infant feeding and the needs of children, women and others prone
to malnutrition;
q Maintain close co-ordination with the other vital sectors (health, water, environmental sanita-
tion, etc.) and aim for maximum integration in existing services;
q Ensure the active involvement of a nutritionist.
Action
q Assess health and nutritional status and food needs as soon as possible;
q Ensure the availability of appropriate food and the necessary transport, storage, cooking fuel
and utensils;
q Organize a general feeding programme for all refugees and, if necessary, selective feeding
programmes to meet the additional needs of children, women and others;
q Monitor effectiveness of feeding programmes and make necessary changes.
186

Introduction
1. In an emergency, refugees may be com-
pletely dependent on external food sources.
An initial assessment of their health and nutri-
tional condition and their numbers must be
made as soon as possible. The types of pro-
grammes needed will be determined by this
initial assessment. Continuous monitoring of
nutritional status will ensure that the empha-
sis on different programmes can be adjusted
in order to reflect changing conditions.
2. The causes of malnutrition are often com-
plex and multi-sectoral (see Fig 1). Therefore co-
ordinating the food and nutrition programmes
with health and other vital sectors is essential.
3. Assistance must be appropriate to the nu-
tritional needs of the refugees and be culturally
acceptable. Foods prepared locally with local
ingredients are preferable to imported foods. In-
fant feeding policies require particular attention.
4. Certain groups are more at risk of mal-
nutrition than others. These include infants,
children, pregnant women and nursing moth-
ers, the sick and the elderly. Special action is
required to identify the malnourished and
vulnerable and to meet their additional needs.
Where the refugees have already suffered a
prolonged food shortage, many will be mal-
nourished by the time of the first assessment.
5. If the refugees are already suffering the
effects of severe food shortage, immediate
action must be taken to provide food avail-
able locally which is acceptable to the refugees.
6. If insufficient acceptable food is available
locally, it must be brought in from outside,
initially by air if necessary. Flexibility and im-
provisation will be required, and time may be
needed to develop the full response set out in
this chapter.
7. This chapter should be read in conjunc-
tion with “Nutrition Guidelines” Médecins
Sans Frontières (MSF), 1995, and UNHCR/WFP
Guidelines for Estimating Food and Nutri-
tional Needs, 1997 and Selective Feeding Pro-
grammes, 1999.
Organization of Food Support
x The World Food Programme (WFP), the food
aid arm of the United Nations system, shares
with UNHCR responsibility for meeting the
food and nutritional needs of refugees;
x The Memorandum of Understanding
(MOU) signed between WFP and UNHCR
establishes the division of responsibilities
and coordination mechanisms for refugee,
returnee and internally displaced persons
feeding operations;
x The aim of the food programme is to ensure
the restoration and maintenance of sound
nutritional status through a food ration
that meets the assessed requirements, is
nutritionally balanced, palatable and cultur-
ally acceptable;
FoodandNutrition15
187
Malnutrition, disability and death
Underlying
cause
Problem
Effect
Adapted from: UNICEF Conceptual Framework of Malnutrition, 1997.
Inadequate
maternal and child
care
Poor water and
sanitation,
inadequate health
services
Insufficient household food
security
Inadequate dietary
intake
Disease
Figure 1 – The Complex causes of malnutrition

x In most refugee emergencies a UNHCR food
and nutrition co-ordinator should be ap-
pointed, who will have overall responsibil-
ity for co-ordination of all aspects of the
food and nutrition programme;
x The refugees, and in particular refugee
women, must be involved in the organiza-
tion of these programmes;
x Simple nutrition education is an integral
part of effective food support.
WFP/UNHCR Co-operation
8. The means to achieve this is through a
food ration that meets the assessed require-
ments, is nutritionally balanced, palatable,
culturally acceptable, and promotes gradual
self-reliance of the beneficiaries. Essential to
this objective is joint UNHCR/WFP planning,
from the start of the emergency.
9. A Memorandum of Understanding
(MOU) (see Appendix 3) exists between
UNHCR and WFP covering cooperation in the
provision of food aid. Under the terms of the
MOU, WFP meets the emergency food needs
of refugees, returnees, and, in specific situa-
tions, internally displaced persons, and pro-
vides associated logistic support. The terms of
the MOU only apply when the beneficiaries in
the country of asylum number more than
5,000, irrespective of their country of origin
or their location within the country of asylum.
UNHCR will meet the food needs of persons
of its concern who are outside the scope of
the MOU.
10. Within the scope of the MOU, WFP has
the lead responsibility for mobilizing the fol-
lowing food commodities (whether for general
or selective feeding programmes) and the re-
sources to deliver them.
11. WFP is also responsible for arrangements
for milling cereals and transporting WFP
commodities to agreed extended delivery
points (EDPs), and for the operation and man-
agement of the EDPs. UNHCR is responsible
for the transportation of all commodities from
the EDP to the final destination and for final
distribution.
12. Under the MOU, UNHCR is responsible
for mobilizing and transporting complemen-
tary food commodities and for the provision
of the necessary micronutrients (vitamins and
minerals) when they cannot be met through
the ration.
13. UNHCR and WFP have developed a com-
mon set of guidelines1
for estimating food and
nutritional needs in emergencies and in selec-
tive feeding programmes2
. These guidelines
should be used to assess the food needs for
both the general and selective feeding pro-
grammes.
Joint Assessment and Planning
14. UNHCR and WFP should carry out a joint
assessment of the overall food, nutrition and
related requirements in consultation with
Extended delivery Points (EDP)
An EDP is the location at which WFP hands
over a consignment of food to UNHCR or its
implementing partner. WFP is responsible
for the consignment and all costs incurred in
moving and storing it, until UNHCR or its
representative collects it from the EDP. In all
cases the location of EDPs must be agreed
jointly by UNHCR and WFP.
EDPs should be positioned to give cost
effective and logistically practical delivery,
while avoiding the imposition of undue
hardships on the beneficiaries because of
travel distance and/or difficult access. When-
ever possible the EDP should be at the same
place as the final distribution point, or, if
not, then as near as possible to it. An EDP
should be established for approximately
every 10,000 beneficiaries.
UNHCR resourced commodities include:
i. Local fresh foods;
ii. Spices and other condiments;
iii. Tea;
iv. Dried milk;
v. Therapeutic milk.
WFP resourced commodities include:
i. Cereals;
ii. Edible oils and fats;
iii. Pulses and other sources of protein;
iv. Blended food;
v. Iodized salt;
vi. Sugar;
vii. High energy biscuits.
The objective of WFP/UNHCR co-operation
is the timely provision of the right amount
of food, to ensure the restoration and main-
tenance of sound nutritional status.
188
1
WFP/UNHCR Guidelines for Estimating Food and Nu-
tritional Needs in Emergencies, UNHCR/WFP, 1997.
2
UNHCR/WFP Guidelines for Selective feeding Pro-
grammes in Emergencies, WFP, UNHCR, Geneva, 1999.

government authorities, operational partners
and experts.
Assessing nutritional status is discussed in de-
tail below. The joint UNHCR/WFP assessment
for the food assistance programme should
cover the following:
Basic Information
i. Numbers and demography (see chapter
11 on registration);
ii. Current nutritional status;
iii. Milling possibilities;
iv. Food commodity preferences of the ben-
eficiaries;
v. Capacity of the family to prepare, store,
and process the food;
vi. Access to cooking fuel, utensils and distri-
bution containers;
vii. Food availability now and over time;
viii. Availability of local food for purchase;
ix. Ease of access to food supplies;
x. Groups at risk – identify who and how
many;
xi. Degree of and prospects for self-reliance;
xii. Coping strategies.
Other Important Information
i. Health status and health services;
ii. Environmental health risks;
iii. Community structure;
iv. Food distribution systems;
v. Socio-economic status;
vi. Availability of human resources;
vii. Logistics constraints;
viii. Storage capacity and quality;
ix. Delivery schedule of food and non-food
commodities;
x. Other agencies’ activities and assistance
currently provided: quantity, items and
frequency, and selective feeding pro-
grammes.
15. WFP and UNHCR should draw up plans
covering: the number of beneficiaries, the
composition of the food basket, ration size,
duration of assistance, and directly related
non-food inputs which may have an impact on
the nutritional status of the beneficiaries (for
example, cooking utensils, cooking fuel and
milling equipment).
16. The main considerations to take into
account when responding to food and nutri-
tional needs of refugees are set out in figure 1.
17. Special consideration should be given to
the needs of women, children and groups-at-
risk. The views of the beneficiaries, especially
those of women, should be sought. The pro-
posed food assistance programme should also
take into account the need to minimize the
environmental impact of cooking the food
provided.
Coordination
18. A UNHCR coordinator should be ap-
pointed as focal point for food and nutritional
issues. In smaller operations, either the pro-
gramme officer or the logistics officer could
be appointed as food coordinator. If techni-
cal expertize is not available initially within
UNHCR then assistance should be sought
from government nutritionists, UN agencies or
NGOs.
19. The food and nutrition coordinator’s re-
sponsibilities are to establish standard proce-
dures, including procedures for general food
distribution, coordinate feeding programmes,
monitor and evaluate the feeding pro-
grammes, and ensure close coordination and
integration with community services, health
and other sectors. The coordinator should act
as the focal point within UNHCR for coordina-
tion with WFP and NGO’s. Where the food co-
ordinator is not her/himself a nutrition special-
ist, an experienced nutritionist will also be
needed to provide the food coordinator with
the necessary technical advice.
Role of Refugees and Nutrition Education
20. The refugees must be involved from the
start in the organization and management of
the feeding programmes. Special training will
be necessary for refugees.
21. The provision of simple nutrition educa-
tion for the refugees is always necessary when
unfamiliar foods or new methods of cooking
cannot be avoided. This should be organized in
conjunction with nutrition education activities
and provide guidance on: proper infant feed-
ing, feeding sick children, treating diarrhoea,
basic food hygiene and preparing available
foods for maximum nutritional benefit.
Cooking Fuel
22. Particular attention must be paid to the
provision of cooking fuel and the control and
The first requirement is a knowledge of the
numbers, nutritional status and food habits
of the refugees.
FoodandNutrition15
189

management of the natural resources in the
vicinity of the camp. Failure to deal with this
can quickly lead to destruction of the vegeta-
tion in and around the site causing lasting dam-
age to the environment, with direct effects on
the health and well-being of refugees and local
people and friction with the local population.
Fuel needs and consumption vary considerably3
– factors affecting the use of fuel include:
i. food preparation, cooking techniques, fuel
type and preparation. Soaking beans prior
to cooking, ensuring lids are used on pots,
ensuring wood is dry and chopped, and
that fires are put out after cooking – all
these make considerable fuel savings and
can be incorporated into environmental
awareness raising and training pro-
grammes. Other steps to facilitate efficient
fuel use are to ensure that the pots sup-
plied have lids.
ii. type of stove. It may be possible to use lo-
cal technology to modify existing types of
wood or charcoal burning stoves in order
to make them more fuel efficient. Simple
improvements and local technologies are
best. Note that the social and economic im-
plications of a new technology are usually
more important in determining whether it
will be adopted than the effectiveness of
the technology itself. The promotion and
use of improved stoves must closely involve
the refugees.
iii. type of food. Freshly harvested foods take
less cooking time, also using milled rather
than whole grain and using pre-cooked
food make considerable fuel savings. The
environmental implications of the food
basket need to be taken into account with
WFP.
iv. availability (or “price”) of fuel itself. This is
often the most significant factor affecting
per capita fuel consumption. The provision
of fuel wood and managing and control-
ling the use of natural resources around
a refugee camp is discussed further in
chapter 12 on site planning.
Nutritional Assessments
x The nutrition assessment should be carried
out as soon as possible by an experienced
nutritionist;
x Nutritional assessment should include an-
thropometric surveys as well as food secu-
rity information;
x Regular assessment is necessary both to
monitor the nutritional status of the com-
munity as a whole and identify individuals
and groups who need special care and food
assistance;
x Information must be gathered on mortality
and morbidity in addition to malnutrition
rates, in order to understand the underly-
ing causes of malnutrition and to identify
people who are most affected.
Introduction
23. An initial assessment of the nutritional
status of the refugees should be made as soon
as possible and should be carried out by an ex-
perienced nutritionist. The extent of malnutri-
tion has important implications for what form
the emergency response will take, and will
enable early decisions to be taken on the com-
ponents of the rations and on the require-
ment for any additional selective feeding
programmes.
24. The nutritional assessment should be
followed by regular nutrition surveys under
specialist supervision to monitor the condition
of the population as a whole.
25. Where conditions and/or results of the
initial assessment or later surveys indicate a
need for selective feeding programmes, indi-
viduals will need to be identified and regis-
tered for these programmes. Their individual
progress should then be monitored through
periodic measurements at the feeding centres.
26. The initial nutrition assessment and the
periodic nutrition surveys of the population as
a whole should be done by measuring the
weight and height of a random sample of the
child population (as explained below). Initially
such surveys should be carried out every two
to three months. When conditions have stabi-
lized, once every six to twelve months is suffi-
cient. Any change or trend in nutritional
status can thus be detected and appropriate
adjustments made in the assistance pro-
grammes.
There is a serious nutritional emergency
where the malnutrition rate is either over
15%, or over 10% with aggravating factors
(e.g. an epidemic). Such a situation requires
urgent action.
190
3
Average fuel-wood consumption per person per day
in different refugee camps has varied from 0.9 kg to
4 kg.

FoodandNutrition15
191
Recognizing and Measuring Malnutrition
27. Malnutrition can be recognized by clini-
cal signs (such as oedema and micronutrient
deficiencies) and by anthropometry (body
measurements). Measurements such as weight-
for-height are used as an objective assessment
of nutritional status, which quantifies the
nutritional situation at one point in time, and
allows comparisons over time.
28. Mortality and morbidity information will
assist in understanding the underlying causes
of malnutrition and identify people who are
most affected. Child mortality rates are partic-
ularly important.
Death rates among children who are severely
malnourished can be about six to ten times
greater than those who are healthy and well
nourished in the same population.
29. Weight-for-height in children, is the best
indicator to assess and monitor nutritional
status of populations. The actual weight of a
child is calculated as a percentage of the stan-
dard weight for a normal child of that height,
or as a Z score. It is the most sensitive indicator
of acute malnutrition and is preferred for
nutrition surveys and for measuring individual
progress in feeding programmes. It is usually
young children aged between 6 and 59 months
who are measured in nutrition surveys, be-
cause young children are the first to show
signs of malnutrition in times of food short-
age and are the most severely affected. When
the ages of children are not known, 65 cm and
110 cm height are used as the cut off points
instead of 6 and 59 months.
30. Body mass index (BMI) (Weight in kg)/
(Height in m)2
, is used for assessing the
nutritional status of adults by assessing the de-
gree of thinness (see table 1).
31. Oedema is an essential nutrition indica-
tor and indicates kwashiorkor (see Annex 3).
Oedema is characterized by swelling in both
feet due to an abnormal accumulation of fluid
in intercellular spaces of the body.
32. Mid-upper-arm-circumference
The mid upper arm circumference (MUAC) is
measured on the left arm, at the mid-point
between elbow and shoulder. MUAC should
only be used as part of a two-step screening
exercise. In the first step the MUAC of children
is measured. Those falling below a certain
cut-off circumference are then channelled to
weight-for-height measurement to determine
their nutritional status and whether they
should be included in selective feeding pro-
grammes.
33. Weight-for-age and height-for-age are
not such useful assessment indicators in emer-
gencies as age is often difficult to determine.
This can be used for growth monitoring of in-
dividual children, and in assessing long-term
(chronic) malnutrition.
Moderate and Severe Malnutrition
34. The standard cut-off points to describe
malnutrition, are between 70% and 80%
weight-for-height (or between -3 and -2 Z
scores) for moderately malnourished and less
than 70% weight-for-height (or < -3 Z scores)
for severely malnourished.
Table 1 summarizes the key malnutrition indi-
cators.
Children with oedema are always classified
as severely malnourished.
In an emergency a high child mortality rate
is very often associated with high levels of
malnutrition.
Table 1: Key Nutritional Indicators*
* Results expressed by different methods are not directly comparable
Malnutrition Children under 5 years Adults BMI
Weight-for- Weight-for- MUAC
height (W/H)% height (W/H) in
of median value 4
Z scores or SD’s 5
Moderate 70% to 79% -3 to -2 Z 110 mm to<125 mm 16 - 17
Severe less than 70% less than -3 Z < 110 mm, less than 16
or oedema oedema
4
Percentage below the median “reference” weight-for-height values.
5
Standard deviations (SDs, or Z score) below the median “reference” weight-for-height values.

General Feeding Programme
x A mean figure of 2,100 kcal per person per
day is used as the planning figure for calcu-
lating the food energy requirements of
refugees in emergencies in developing
countries6
;
x Everyone in the population, irrespective of
age or sex, should receive exactly the same
general ration (i.e. same quantity and type
of foods);
x The food basket should be nutritionally
balanced and suitable for children and
other groups at risk;
x Every effort should be made to provide
familiar foodstuffs and maintain traditional
food habits;
x The level of fat intake should provide at
least 17% of the dietary energy of the
ration. Protein intake should provide at
least 10-12% of the total energy;
x The diet must meet essential vitamin and
mineral requirements;
x Particular attention should be paid to locally
prevalent nutrient deficiencies.
General Ration
35. Every effort should be made to provide
familiar foodstuffs and maintain sound tradi-
tional food habits. Expert advice on the ration
size and composition is essential and should
take full account of local availability of food
commodities. Staple food should not be chan-
ged simply because unfamiliar substitutes are
readily available. Inappropriate foods often
lead to waste and lower the morale of the
refugees.
36. The first concern is to ensure that en-
ergy and protein requirements are met. The
planning figure for the average minimum
daily energy requirement per person per day
for a developing country population at the
beginning of an emergency is 2,100 kcal. See
Annex 1 for examples of rations which meet
this requirement. This average requirement is
calculated on an average population contain-
ing men, women and children of different
age groups. However, a complete ration
should be provided to each refugee without
distinction.
A population which contains mostly active
adults may require considerably higher aver-
age energy intakes. In addition, a higher ration
is vital for survival in a cold climate.
37. The daily energy requirement can be
adjusted when the situation has stabilized 7
and detailed data is available. Factors to be
taken into consideration are:
i. Age and sex composition of the population;
ii. Activity level;
iii.Climatic conditions;
iv. Health, nutritional and physiological status;
v. People’s access to other food sources e.g.
agriculture, trade, labour.
38. The food basket should comprise: a sta-
ple food source (cereals), an energy source
(fats and oils), a protein source (legumes,
blended foods, meat, fish), salt and possibly
condiments (such as spices). Fresh foods
should be included in the food basket for es-
sential micronutrients. The level of fat intake
should provide at least 17% of the dietary en-
ergy of the ration, and protein intake should
provide at least 10-12% of the total energy.
39. When certain food commodities are not
available, they can be replaced for a maximum
of one month by other available food items in
order to maintain the adequate energy and
protein level. Substitution in energy value,
should an item not be available, is:
Corn Soy Blend (CSB) for beans 1:1
Sugar for oil 2:1
Cereal for beans 2:1
Cereal for oil8
3:1
E.g. the energy from 20 g of sugar can substi-
tute for that from 10 g of vegetable oil.
40. Cereal flour, rather than whole grain,
should be provided, especially at the begin-
ning of an emergency. Considerable fuel sav-
ings are made by using milled rather than
whole grain. If whole grains are provided,
local milling should be made available and the
cost compensated for.
A minimum requirement of 2,100 kcal per
person per day is used as the planning fig-
ure for a developing country population at
the beginning of an emergency.
192
6
The Management of Nutritional Emergencies in Large
Populations, WHO, Geneva, 1978.
7
See for further information: WFP/UNHCR Guidelines for
Estimating Food and Nutritional Needs in Emergencies,
1997.
8
One way only, note that oil cannot be used in place of
cereal.

41. Essential vitamin and mineral require-
ments must also be met. The basic food
commodities distributed through the general
ration do not normally cover the required
amounts of vitamins and minerals. Therefore,
deficiencies often arise among populations
entirely dependent on external food aid and
within a population among vulnerable groups
like infants, pregnant women and nursing
mothers. Particular attention should also be
paid to locally prevalent nutrient deficiencies.
42. The risk of specific nutrient deficiencies
can be estimated from the composition of the
general ration and access the population has
to other food sources in the area. Possible op-
tions for providing vitamins and minerals are:
i. Provide fresh food products;
ii. Promote the production of vegetables and
fruits;
iii.Add to the ration a food rich in a particular
vitamin and micronutrient such as fortified
cereals, blended foods, or condiments;
iv. Provide supplements in tablet form, which
is the least preferred option.
43. Wherever possible the refugees should
be encouraged to grow vegetables themselves:
the production of fresh food by refugees not
only improves and diversifies the diet but saves
fuel and provides an opportunity to generate
some income. Larger plot sizes and the provi-
sion of appropriate seeds would facilitate this,
however, it can be difficult to encourage
refugees to produce fresh food because of
their uncertainty as to the length of their stay
and problems of access to land.
Food Distribution
44. The need for a fair, efficient and regular
food distribution cannot be over-emphasized.
This is discussed in chapter 13 on commodity
distribution. There are two main types of dis-
tribution: dry ration and cooked meals.
45. Dry food distribution (which is taken
home) has major advantages over cooked
food distribution. It allows families to prepare
their food and to use their time as they wish,
permits them to continue to eat together as a
unit and is more culturally and socially accept-
able. It also reduces the risk of the spread of
infectious diseases.
46. Cooked meal distribution requires cen-
tralized kitchens with adequate utensils, wa-
ter and fuel (the requirement is less than the
amount required for family cooking), and
trained personnel. The refugees usually sit
together in a feeding compound, although in
some circumstances families can carry the
cooked meal to their accommodation. At least
two meals must be served each day.
Cooked meal distribution to the whole popu-
lation is therefore only provided under excep-
tional circumstances when the refugees do
not have access to adequate water and/or
cooking fuel and in insecure situations.
47. In addition to cooking pots, fuel and
utensils, the refugees must have containers
and sacks to protect and store their food ra-
tions. Oil tins and grain bags will be useful,
and contracts with suppliers, at least for initial
deliveries, should not require their return.
Monitoring the General Feeding Programme
48. The general feeding programme can be
monitored by:
❏ Food basket monitoring: Comparing the
quantity and quality of food collected by
the refugees at the distribution site on dis-
tribution days compared with the planned
ration, Also by monitoring after the distri-
bution at household level through house
visits (on distribution day);
❏ Discussing the quality and quantity of the
rations regularly with the refugees;
❏ Investigating complaints.
For more information on how to monitor the
general food programme see UNHCR’s Com-
modity Distribution: A Practical Guide For Field
Staff, and MSF’s Nutrition Guidelines.
Selective Feeding Programmes
x The objective of a selective feeding pro-
gramme is to reduce the prevalence of mal-
nutrition and mortality among the groups
at risk;
x Selective feeding programmes provide extra
food for the malnourished and at-risk
groups – this food must be in addition to
(not a substitute for) the general feeding
programme;
x The programme must actively identify those
who are eligible for the selective feeding
programmes, using criteria described in this
chapter.
Cooked meals are much more difficult to or-
ganize efficiently than dry ration distribu-
tion, particularly for large numbers.
FoodandNutrition15
193

194
Is there
much
malnutrition?
Figure 2 – Response to food and nutritional needs
Bring in outside
assistance (and
equipment if needed)
Monitor nutritional
situation and the
feeding programme
Assess
nutritional status
No Yes
Yes
Decide what selective feeding
programmes are required
No
No
No
No
Draw up simple general ration
based on appropriate familiar
foods
Calculate bulk quantities
required
Ensure that food can be
delivered
Two basic considerations
Sufficient quantities Action on
of right food now malnutrition
and for the future and its causes
Do groups
at risk need special
programmes?
Are
appropriate
foods available
locally?
Can local
health system
and refugees
cope?
Yes
Yes
Set up the necessary
supplementary
therapeutic feeding
programmes
Action to ensure
fair distribution,
cooking fuel, utensils
Is the
required food
available
locally?

General Principles of Selective Feeding
Programmes
49. Where malnutrition exists or the needs
of the groups at risk cannot be met through
the general ration, special arrangements are
required to provide extra food. This is organ-
ized through different types of selective feed-
ing programmes which take into account the
degree of malnutrition and associated risks.
In the emergency phase of an operation,
selective feeding programmes are part of
an emergency measure to prevent excess
mortality. However, preventing excess mor-
tality should be a combined strategy of selec-
tive feeding, public health and emergency
health care. Ref. Figure 2.
50. Malnutrition develops particularly among
infants, children, pregnant women, nursing
mothers, the elderly and the sick. Their vulner-
ability stems from the greater nutrient require-
ments associated with growth, the production
of breast milk, repair of tissues and production
of antibodies. Malnutrition results in lower re-
sistance to infection, which in turn results in
further malnutrition. Small children are partic-
ularly susceptible to this cycle of infection and
malnutrition. Sick children must eat and drink
even if they do not have an appetite, are vom-
iting, or have diarrhoea. Because children are
unable to eat a large volume of food, it is nec-
essary to prepare food in a concentrated form
(giving the required nutrients in less volume),
and to provide more frequent meals.
51. Certain other groups or individuals may
be at risk of malnutrition for social or economic
reasons. These include unaccompanied chil-
dren, the disabled, single-parent families, and
the elderly, particularly those without family
support. In some communities specific social or
cultural practices and taboos may put con-
straints on meeting the nutritional needs of
certain persons, for example pregnant women
and nursing mothers or even sick children.
52. Even if the overall quantity of food is
sufficient there may be other causes such as:
i. Inequities in the distribution system reduc-
ing access to food for certain groups;
ii. Inaccuracies in registration or unfair distri-
bution of ration cards;
iii.Infections;
iv. Faulty feeding or food preparation habits.
53. The following types of selective feeding
programmes are contemplated:
i. Supplementary Feeding Programmes (SFP)
a) Targeted SFP
b) Blanket SFP;
ii. Therapeutic Feeding Programmes.
Supplementary Feeding Programmes (SFP)
54. Targeted and blanket supplementary
feeding programmes provide extra food to
groups at risk, in addition to the general
ration, as dry take-home or wet on-the-spot
feeding for a limited period of time.
55. A targeted SFP aims to rehabilitate
those who are moderately malnourished.
These could be children adults or older
persons and/or individuals selected on med-
ical or social grounds, e.g. pregnant and
nursing women and the sick. This is the most
common type of supplementary feeding pro-
gramme.
56. A blanket SFP provides a food (and/or
micronutrient) supplement to all members of
a certain vulnerable group regardless of their
individual nutritional status in order to pre-
vent a deterioration in the nutritional status
of those groups most at risk (usually children
under five, pregnant women and nursing
mothers.
57. Supplementary feeding programmes can
be implemented either by giving wet or dry
rations.
Therapeutic Feeding Programmes (TFP)
58. A TFP aims to reduce deaths among in-
fants and young children with severe protein-
energy malnutrition (PEM). The forms of PEM
are described in Annex 3. Generally the target
group is children under 5 years with severe
malnutrition. Therapeutic feeding can either
be implemented in special feeding centres or
in a hospital or clinic. TFP involves intensive
medical and nutritional treatment. Therapeu-
tic milk (TM) is used for treatment of severely
To be effective, the extra ration provided
must be additional to, and not a substitute
for, the general ration.
Selective feeding programmes are not a
substitute for an inadequate general ration.
The organization of these programmes
should be integrated from the beginning
with community and health services and es-
pecially with Mother and Child Health Care
programmes (MCH).
FoodandNutrition15
195

malnourished children. However if TM is not
available, high protein milk can be used (dried
skimmed milk, oil and sugar) mixed with vita-
min mineral supplements.
Starting a Selective Feeding Programme
59. The decision to start a selective feeding
programme is based on the prevalence of
malnutrition and other aggravating factors.
Aggravating factors include high mortality
(more than 1 person per 10,000 per day),
measles epidemic, high prevalence of infec-
tious diarrhoea, general ration below mini-
mum requirements. The prevalence of malnu-
trition is assessed from the initial and on-
going nutrition assessments and surveys.
60. The effectiveness of these programmes
will be severely compromised if an adequate
general ration is not provided.
In all situations, remember that it is more
important to address the root causes of
malnutrition than to address symptoms
through selective feeding programmes.
196
GENERAL RATION
<2,100 Kcals/
person/day
MALNUTRITION RATE
≥ 15% SERIOUS
BLANKET supplementary
feeding programme
THERAPEUTIC feeding
programme
ALERT
TARGETED supplementary
feeding programme
THERAPEUTIC feeding
programme
ACCEPTABLE
No need for population
level interventions
(individual attention for
malnourished through
regular community services)
MALNUTRITION RATE
10 – 14%
+
in presence of
AGGRAVATING FACTORS(*)
MALNUTRITION RATE
10 – 14%
MALNUTRITION RATE
5 –9%
+
in presence of
MALNUTRITION RATE
< 10%
with no
MALNUTRITION RATE
< 5%
in presence of
ALWAYS
IMPROVE
GENERAL
RATION
*Aggravating Factors
General food ration below the mean energy requirements
Crude mortality rate > 1 per 10,000 per day
Epidemic of measles or whooping cough
High prevalence of respiratory or diarrhoeal diseases
Malnutrition Rate
Proportion of child population
(6 months to 5 years) whose weight-
for-height is below -2 Z-scores
or less than 80% of the median
NCHS/WHO reference values,
and/or oedema.
Adapted from: Nutrition Guidelines; MSF, 1995
or
or
Figure 3 – Selective Feeding Programmes

64. The links between different selective
feeding programmes and the criteria for entry
and discharge from a programme are shown
in figure 4 below.
Planning and Organizing a Selective Feeding
Programme.
Organizing a Supplementary Feeding
Programme
65. Supplementary feeding programmes can
be implemented either by providing wet ra-
tions or dry rations.
i. Wet rations are prepared in the kitchen of a
feeding centre and consumed on-site. The
beneficiary, or child and caretaker, have to
come for all meals to the feeding centre
every day;
ii. Dry rations are distributed to take home for
preparation and consumption. Rations are
usually distributed once a week.
66. In most situations dry take-home SFP
programmes are preferable. The advantages
of dry instead of wet rations for SFP include:
61. Figure 3 provides guidance on deciding
when to initiate selective feeding pro-
grammes. Clear criteria for the termination of
these programmes should be defined from
the beginning.
Identifying Those Eligible
62. Selective feeding programmes must be
based on the active identification and follow
up of those considered at risk. Beneficiaries
can be identified by:
❏ House to house visits to identify all mem-
bers of a targeted group (e.g. children un-
der five, elderly people);
❏ Mass screening of all children to identify
those moderately or severely malnourished;
❏ Screening on arrival (for example with the
registration exercise);
❏ Referrals by community services and health
services.
63. Table 2 below summarizes the main
objectives, target groups and criteria for selec-
tion of beneficiaries of selective feeding pro-
grammes.
FoodandNutrition15
197
• Children under 5 years moderately malnourished:
© between 70% and 80% of the median
weight-for-height or:
© between -3 and -2 Z-scores weight-for-height
• Malnourished individuals (based on weight-for-height,
BMI, MUAC or clinical signs):
© older children (between 5 and 10 years)
© adolescents
© adults and elderly persons
© medical referrals
• Selected pregnant women (from date of confirmed
pregnancy) and nursing mothers (until 6 months after
delivery), for instance using MUAC <22 cm as a cut-off
indicator for pregnant women
• Referrals from TFP
• Children under 3 or under 5 years
• All pregnant women (from date of confirmed
pregnancy) and nursing mothers (until maximum
6 months after delivery
• Other at-risk groups
• Children under 5 years severely malnourished:
© < 70% of the median weight-for-height and/or
oedema or:
© < -3 Z-scores weight-for-height and/or oedema
• Severly malnourished children older than 5 years, ado-
lescents and adults admitted based on available
weight-for-height standards or presence of oedema
• Low Birth Weight babies
• Orphans < 1 year (only when traditional care practices
are inadequate)
• Mothers of children younger than one year with breast
feeding failure (only in exceptional cases where relacta-
tion through counselling and traditional alternative feed-
ing have failed)
Table 2 – Types of Selective Feeding Progammes
Programme Objectives Criteria for selection and target group
Targeted • Correct moderate malnutrition
SFP • Prevent moderately malnourished
from becoming severely
malnourished
• Reduce mortality and morbidity
risk in children under 5 years
• Provide nutritional support to
selected pregnant women and
nursing mothers
• Provide follow up service to
those discharged from therapeutic
feeding programmes
Blanket • Prevent deterioration of
SFP nutritional situation
• Reduce prevalence of acute mal-
nutrition in children under 5 years
• Ensure safety net measures
• Reduce mortality and morbidity risk
TFP • Reduce excess mortality and
morbidity risk in children under
5 years
• Provide medical/nutritional
treatment for the severely
malnourished

i. Much easier to organize;
ii. Fewer staff are needed;
iii.Lower risk of transmission of communicable
diseases;
iv. Less time-consuming for the mother;
v. The mother’s responsibility for feeding the
child is preserved.
The ration for dry feeding however has to be
higher than for wet feeding in order to com-
pensate for sharing and substitution. Wet
rations are typically given in situations where
insecurity prevents dry rations from being
taken home safely or where access to cooking
facilities are limited. See Table 3 below for
some of the main considerations when organ-
izing a selective feeding programme.
Organizing a Therapeutic Feeding Programme
67. Therapeutic feeding programmes are
either implemented in specially organized feed-
ing centres or in hospitals or clinics. They involve
intensive medical and nutritional treatment as
well as rehydration. The programme should be
easily accessible to the population, near to or
integrated into a health facility. The treatment
should be carried out in phases (see Table 3),
the length of which depend on the severity of
malnutrition and/or medical complications. At
least during the first week of a TFP, care has to
be provided on a 24-hour basis.
198
Organization of Selective Feeding Programmes
Supplementary Feeding Programme Therapeutic Feeding Programme
Organization • On site wet feeding
• Some medical care
On site feeding
would usually only be
considered for
targeted SFP
Size of • 500 - 700 kcal/
extra ration person/day, and
• 15-25 g protein
Frequency Minimum 2
of meals meals/day
• On site wet feeding
+
• Intensive medical care
+
• Psychological stimulation during
rehabilitation phase
• 150 kcal/kg body-weight/day/
patient.
and
• 3-4 g protein per kg body-
weight/day/patient
Frequent meals.
Phase 1: 8-10 meals over a 24 hour
period
Rehabilitation phase: 4-6 meals
• Take home dry
feeding
This is the preferred
option for both blan-
ket and targeted pro-
grammes
• 1,000 - 1,200
kcal/person/day, and
• 35-45 g protein
Ration distributed
once per week
W/H* < 70%
(or < -3 Z-scores**)
and/or oedema
THERAPEUTIC
FEEDING
PROGRAMME***
1) W/H* ≥ 75%
(or ≥ 2.5 Z-score**)
2) Appetite restored
3) Free of illness
W/H* ≥ 85%
(or ≥ -1.5 Z-scores**)
W/H* between
70 and 80%
(or between
-3 and -2 Z-scores**)
TARGETED
SUPPLEMENTARY
FEEDING
PROGRAMME
W/H* < 70%
(or < -3 Z-scores**)
Admission
Referral
Return to TFP
Discharge
Admission
Table 3
Figure 4 – Admission and discharge Criteria
* Weight-for-height
** No consensus yet exists about the preferred
indicator to be used, %W/H or Z-score
*** Where no Targeted SFP exists discharge criteria
from TFP is W/H* ≥ 85% (or ≥ -1.5 Z-score)
Modified from:
Nutrition Guidelines;
MSF, 1995

68. One of the main constraints to the
implementation of a TFP is the lack of experi-
enced or insufficient staff to manage the pro-
gramme. Proper training of both medical and
non-medical personnel is essential before
starting the programme. The refugees, partic-
ularly the mothers of patients, must be in-
volved in managing the TFP centres.
Planning the quantity of food needed for
selective feeding
69. The amount of food needed for the se-
lective feeding programme will depend on:
i. The type of selective programme;
ii. The type of commodities;
iii.The expected number of beneficiaries.
70. This information should be based on pre-
cise demographic information and on the
prevalence of malnutrition taken from the re-
sults of the nutritional survey. The nutritionist
will advise on the appropriate commodities
and type of programme.
71. However, in some circumstances, esti-
mates on the prevalence of malnutrition and
expected number of beneficiaries may need to
be made for planning purposes, when for ex-
ample a registration and nutrition assessment
have not yet been carried out. See table 4 be-
low for a projected demographic breakdown
for a typical population.
72. If it is apparent that there is, or is likely
to be, a major nutritional emergency, the fol-
lowing assumptions can be made for planning
purposes:
i. 15 to 20% may suffer from moderate mal-
nutrition;
ii. 2 to 3% may be severely malnourished;
iii.The breakdown of a typical population, by
age, is as follows:
73. For example, to estimate the number of
beneficiaries for a targeted SFP and TFP, both
for children under 5 years:
If the total population = 30,000
Estimated number under 5 yrs = 4,500 –
6,000 (15-20%)
Estimated prevalence of moderate malnu-
trition (15%) gives 675-900 children
Estimated prevalence of severe malnutri-
tion (2%) gives 90-120 children
With these numbers the estimated food re-
quirements can be calculated by multiplying
the estimated number of beneficiaries for
each programme by the ration scale appropri-
ate for each beneficiary, as follows:
Quantity of Commodity req. =
Ration / person / day x no. benef. x no. days
Monitoring Selective Feeding Programmes
74. The effectiveness of impact of the selec-
tive feeding programme should be monitored
at regular intervals.
75. Selective feeding programmes should be
monitored and evaluated to assess their per-
formance in relation to the established objec-
tives9
. Monitoring and evaluation will involve
the regular collection and analysis of:
❏ Process indicators such as attendance, cov-
erage and recovery rates, to evaluate the
success in implementation and trends in the
programme over time;
❏ Impact indicators such as malnutrition
prevalence, mortality rate and numbers
served, to evaluate the effectiveness and
efficacy of the programme.
76. The effectiveness of selective feeding
programmes can be measured through nutri-
tion surveys and the regular collection of
feeding centre statistics. Specific forms for
monthly reporting on supplementary and
therapeutic feeding programmes are attached
as Annexes 4 and 5. A nutrition survey results
form (weight-for-height) is also attached
(Annex 6).
77. Trends in health and nutrition indicators
can be related to many different factors.
Actions in other sectors such as water, shelter,
or community services may help explain a pos-
itive outcome.
Criteria for Closing Programmes
78. Once the number of malnourished is
significantly reduced, it may be more efficient
to manage the remaining severely malnour-
ished individuals through health facilities and
through community based programmes. The
specific criteria for closing each selective feed-
FoodandNutrition15
199
Projected Breakdown by Age
age groups % total population
0-4 or under 5 15-20%
Pregnant 1.5 - 3%
Lactating 3-5%
9
For further reference, consult Chapter 8: Evaluation of
Feeding Programmes in the MSF Nutrition Guidelines.
Table 4

ing programme will depend on the degree
of success in reducing the main aggravating
factors mentioned in Figure 3 and on the de-
gree of integration between these feeding
programmes and mother and child health
(MCH) activities and other support services
offered by the refugee community.
79. After closing selective feeding pro-
grammes, any deterioration of the situation
should be detected by nutrition surveys under-
taken at regular intervals and review of morbid-
ity and mortality data. This is especially impor-
tant if the overall situation remains unstable.
Infant Feeding and use of Milk
Products
x Breast-feeding is best for babies and must
be promoted and continued for as long as
possible;
x Ban baby bottles completely;
x Weaning foods must be appropriate; for-
eign baby foods and special foods often are
not;
x Infant formulae should be avoided and
used only under strictly controlled condi-
tions, with a cup and spoon;
x Re-stimulate lactation10
in cases where milk
production has been affected by stress and
use wet nursing where appropriate;
x Milk products, especially powdered milk,
and infant formulae can cause health prob-
lems (as described below) and they are
often inappropriate.
80. Human milk is the best and safest for in-
fants and children under two years. Breast-
feeding provides a secure and hygienic source
of food, often initially the only source of food,
as well as antibodies giving protection against
some infectious diseases. Breast feeding must
be encouraged for as long as possible. Every
effort must be made to promote or re-stimu-
late lactation even among sick and malnour-
ished mothers. Experience has shown that this
can be done. Mothers may need to receive
extra food to encourage breast-feeding and
provide the additional calories and nutrients
required. This should be done through the
feeding programmes.
81. The problems associated with infant for-
mulae, milk products and feeding bottles are
exacerbated in a refugee emergency. Clean
boiled water is essential but rarely available,
careful dilution of the feeds is of critical im-
portance but difficult to control, mothers are
unlikely to be familiar with the use of infant
formulae, and the instructions are often in a
foreign language. Infant formulae, if unavoid-
able, should be distributed from health or
feeding centres under strictly controlled con-
ditions and proper supervision. Infant feeding
bottles must never be distributed or used;
they are almost impossible to sterilize and
keep sterile under emergency conditions and
are therefore dangerous. Babies should be fed
by clean cup and spoon if necessary. Appropri-
ate weaning foods should be introduced
while breast-feeding is continuing. Weaning
foods should be locally available foodstuffs
and as far as possible be prepared in the tradi-
tional manner. Overseas donations of tinned
baby foods are rarely appropriate.
Key References
Calculation of Nutritional value of Food Com-
modities (NUT-VAL), an EXCEL spreadsheet which
can be used to calculate the nutritional value of
ration scales, UNHCR, Geneva, 1998.
Commodity Distribution: A Practical Guide For
Field Staff, UNHCR, June 1997.
IOM 88/89 – FOM 76/89 Policy for acceptance,
distribution and use of milk products in refugee
feeding programmes, UNHCR, Geneva, 1989.
Also available in French.Memorandum of Un-
Policy On Use of Milk Powder11
i. Never distribute milk powder, by itself, to
take home. It should be mixed with cereal
flour, six parts cereal to one part milk
powder;
ii. Never let liquid milk be carried home;
iii.Only use dried milk in supervised wet
feeding programmes as a high energy
drink mixed with oil and sugar;
iv. Dried skimmed milk should always be for-
tified with Vitamin A and have a shelf-life
of more than six months.
200
10
Re-stimulate lactation refers to the re-establishment of
an adequate volume of milk release. This is achieved by
increasing suckling and through social peer support.
11
UNHCR IOM 88/89/FOM 76/89 Policy Directive for accep-
tance, distribution and use of milk products in refugee
feeding centres, UNHCR, Geneva.

FoodandNutrition15
201
Anthropometric Assessment of body size and composition which reflects food intake,
measurements physical activity and disease. Most common anthropometric indicators
include weight, height and arm circumference.
Baseline data Data collected at the beginning of a programme that can be compared
with similar data collected later and so used to evaluate the impact of
interventions or to monitor trends.
Body Mass Index (BMI) (weight in kg)/ (height in m)2
which is used for assessing the nutritional
status of adolescents and adults.
Fortified blended food A flour composed of pre-cooked cereals and a protein source, mostly
legumes, fortified with vitamins and minerals, e.g. corn soya blend
(CSB), wheat soya blend (WSB) used for feeding programmes.
Fortification Adding micronutrients to foods, e.g. iodized salt and fortified blended
food.
Kilocalorie Unit of energy used in nutrition, 1 Kcal = 4.17 kilojoules.
Kwashiorkor Severe form of malnutrition characterized by oedema (swelling) partic-
ularly of the lower parts of the arms and legs.
Marasmus Severe form of malnutrition in which the person becomes wasted.
Micronutrients Minerals and vitamins.
Mid-upper arm Circumference at the mid-point of the left upper arm, which is an
circumference (MUAC) indicator of malnutrition and used as a tool for screening.
Nutrients Those parts of food that are absorbed and/or used by the body i.e. car-
bohydrate, protein, fat, alcohol, vitamins and minerals.
Oedema An abnormal accumulation of fluid in intercellular spaces of the body. In
case of nutritional oedema this is oedema due to a deficiency in the diet.
On-site feeding Cooked meal eaten at the feeding centre.
Stunting Low height for age. Comparing the height of a child of a certain age
with the height of reference (healthy) children of the same age indi-
cates the level of chronic malnutrition.
Take-home rations Dry rations that are given to people to take and prepare at home.
Therapeutic milk Special milk used for rehabilitation of severely malnourished persons.
Wasting Abnormal loss of fat and/or muscle tissue which is indicated by a low
weight for height, a low body mass index or observation (thinness).
Xerophthalmia Clinical signs in the eye caused by Vitamin A deficiency.
Weight-for-Height The weight of a person at a certain height compared with the refer-
ence weight for that height.
Glossary
derstanding (MOU) on the Joint Working
Arrangements for Refugee, Returnee and Inter-
nally Displaced Persons Feeding Operations,
Also available in French. WFP/ UNHCR, 1997.
Nutrition Guidelines, Médecins Sans Frontières
(MSF), 1995. Essential Reading.
Nutrition Surveys in Emergency Situations,
(Video, PAL, 38 min), UNHCR Geneva.
WFP/UNHCR Guidelines For Estimating Food
and Nutritional Needs, Also available in French.
WFP/UNHCR, 1997.
WFP/UNHCR Guidelines For Selective Feeding
Programmes in Emergency Situations, WFP/
UNHCR, 1999.

All foods are made up of five basic types of nu-
trient in addition to variable amounts of water.
Carbohydrates, the main source of energy, pro-
vide 4 kcal/g. They are mostly starches and sug-
ars of vegetable origin, and are a major compo-
nent of cereals and tubers.
Fats and oils provide the most concentrated
source of energy, and have more than twice the
energy content per weight of carbohydrates
and proteins (9/kcal/g).
Proteins are body-building substances required
for growth and tissue repair. Protein is found in
foods of animal origin and in cereals and
legumes and provide 4 kcal/g.
Vitamins and minerals are needed in small
quantities for the adequate functioning of the
body and protection against disease. Fresh veg-
etables and fruits are a good source of vitamins.
Water soluble vitamins are fragile and cannot
be stored (Vitamins Bs and C), whereas fat solu-
ble vitamins can be stored in the body (Vitamin
A and D). Important minerals are iron, sodium,
iodine, zinc, magnesium, potassium, etc. Individ-
ual vitamins and minerals or combinations are
found in all foods in very variable amounts.
Energy and Protein Intakes
If the energy intake is inadequate, some protein
will be burnt to provide energy. That is, it will
be used in the same ways as carbohydrate or
fat. More than 20% of the energy requirement
should be supplied from fats and oils which
greatly enhance the palatability of the diet and
increase energy density (important for younger
children). Energy requirements vary widely even
in normal individuals. They are also increased by
physical activity. Much higher energy and pro-
tein intakes are required for the treatment of
malnutrition, when the aim is rehabilitation
rather than maintenance.
Food and Diets
Most diets in most countries contain adequate
amounts of all the nutrients required for good
health if enough of the diet is taken to satisfy
the individual's energy requirements. Even a
growing child, if healthy, requires no more than
10% of total calories to be supplied from pro-
tein sources.
202
Annex 1 – Basic Facts About Food and Nutrition

Annex 1 (cont.) – Nutritional Value Of Food Commodities
FoodandNutrition15
203
Nutritional Value / 100 g
Price per MT
COMMODITY
Energy Protein Fat in US$
Kcal (g) (g)
Cereals
Wheat 330 12.3 1.5 165
Rice 360 7.0 0.5 280
Sorghum / Millet 335 11.0 3.0 200
Maize 350 10.0 4.0 170
Processed Cereals
Maize meal 360 9.0 3.5 225
Wheat flour 350 11.5 1.5 240
Bulgur wheat 350 11.0 1.5 220
Blended Food
Corn Soya Blend 380 18.0 6.0 320
Wheat Soya Blend 370 20.0 6.0 390
Soya-fortified bulgur wheat 350 17.0 1.5 240
Soya-fortified maize meal 390 13.0 1.5 270
Soya-fortified wheat flour 360 16.0 1.3 240
Soya-fortified sorghum grits 360 16.0 1.0 190
Dairy Products
Dried Skim Milk (enriched) 360 36.0 1.0 1,900
Dried Skim Milk (plain) 360 36.0 1.0 1,800
Dried Whole Milk 500 25.0 27.0 2,200
Canned cheese 355 22.5 28.0 1,850
Therapeutic milk 540 14.7 31.5 2,200
Meat and Fish
Canned meat 220 21.0 15.0 1,950
Dried salted fish 270 47.0 7.5 1,500
Canned fish 305 22.0 24.0 2,000
Oils and Fats
Vegetable oil 885 - 100.0 750
Butter oil 860 - 98.0 2,300
Edible fat 900 - 100.0 950
Pulses
Beans 335 20.0 1.2 440
Peas 335 22.0 1.4 375
Lentils 340 20.0 0.6 500
Miscellaneous
Sugar 400 - - 350
High Energy Biscuits 450 12.0 15.0 1,250
Tea (black) - - - 1,235
Iodized salt - - - 150
Dates 245 2.0 0.5 1,900
Dried fruit 270 4.0 0.5 1,200
Note: The prices quoted are free-on-board (FOB) and therefore do not include transportation costs. The prices shown are as
of 1998 and will vary over time. This information is regularly updated and published by WFP and is available from WFP HQ’s
or from their offices in the field.

204
Annex 1 (cont.) – Characteristics of Common Foods
Food type
Vitamins and
minerals
Comments
1. Cereal grains
(rice, corn, sorghum, oats,
etc.)
Contain vitamin B and iron.
However these are reduced
by milling, i.e. the whiter the
flour the greater the loss of
vitamins.
The main source of both
energy and protein in most
diets.
2. Legumes / oilseeds
(beans, peas, soya, ground-
nuts, etc.)
B complex vitamins. Most
contain significant quantities
of iron and calcium.
Legumes are particularly use-
ful when eaten with cereals
as the proteins complement
each other.
3. Whole tubers and roots
(yams, taro, cassava, sweet
potato, potato, etc.)
Variable but generally low,
except for potatoes which
are rich in vitamin C.
Bulk and low protein content
makes them unsuitable as
staple foods in emergencies.
4. Vegetables and fruits Important source of vitamins
and minerals. Variable quan-
tities of B and C vitamins. Dark
green leaves or yellow/red
pigmentation usually indicates
vitamin A compounds.
5. Meat, milk and dairy
products, eggs, etc.
Good sources of B vitamins.
Whole milk and eggs also
good source of vitamin A.
Milk and eggs provide signifi-
cant amounts of calcium.
Usually consumed in very
small quantities in normal
times. They are more readily
used by the body than pro-
teins of vegetable origin.
Therefore small quantities
useful to improve the quality
and palatability of diet.
6. Fish, dried Rich source of calcium and
iron. Contains B Vitamins.
A concentrated source of
protein for those who like it.
Therefore acceptability trials
essential before use.
7. Fats and oils Fats derived from milk are
sources of vitamin A and D,
while vegetable fats contain
no vitamin A and D, except
for red palm-oil.
Useful way to increase en-
ergy intake without increas-
ing bulk of diet. Improves
palatability and helps in food
preparation.

FoodandNutrition15
205
Annex 2 – Examples of Food Rations
Examples of adequate full rations for the affected population entirely reliant
on food assistance12
Five types of rations are shown to illustrate differences due to such factors as the food habits of the
population and the acceptability and availability of the commodities in the region.
Examples of Typical Daily Rations for SFPs (in grammes per person per day)
Items Rations
(quantity in grams per person per day)
Type 1* Type 2* Type 3* Type 4** Type 5*
Cereal flour/rice/bulgur 400 420 350 420 450
Pulses 60 50 100 60 50
Oil (vit. A fortified) 25 25 25 30 25
Canned fish/meat – 20 – 30 –
Fortified blended foods 50 40 50 – –
Sugar 15 – 20 20 20
Iodized salt 5 5 5 5 5
Fresh veg./fruits – – – – 100
Spices – – – – 5
Energy: kilocalories 2113 2106 2087 2092 2116
Protein (in g and in % kcal) 58 g; 11% 60 g; 11% 72 g; 14% 45 g; 9% 51 g; 10%
Fat (in g and in % kcal)* 43 g; 18% 47 g; 20% 43 g; 18% 38 g; 16% 41 g; 17%
* For rations 1, 2, 3, & 5 the cereal used for the calculation is maize meal
**This ration has rice as a cereal; the low percentage energy for protein is acceptable due to its high quality;
the slightly low fat content is in line with food habits in rice-eating countries
Take-home On-site feeding or wet ration
or dry ration
Item Ration 1 Ration 2 Ration 3 Ration 4 Ration 5 Ration 6 Ration 7
Blended food, fortified 250 200 100 125 100
Cereal 125
High Energy Biscuits (HEB) 12513
Oil, fortified with vitamin A 25 20 15 20 10 10
Pulses 30 30
Sugar 20 15 10 10
Salt, iodized 5
Energy (Kcal) 1250 1000 620 560 700 605 510
Protein (g) 45 36 25 15 20 23 18
Fat % Kcal 30 30 30 3014
28 26 29
12
WFP/UNHCR Guidelines for estimating food and nutritional needs. December, 1997.
13
WFP Specification.
14
High Energy biscuits with 15% fat meet the energy density requirement.

206
15
Adapted from: The Management of Nutritional Emergencies in Large Populations, WHO, Geneva, 1999 (in press).
Annex 3 – Main Nutritional Deficiency Disorders in Emergencies15
Protein-energy malnutrition (PEM) is likely to be the most important health problem and a
leading cause of death during an emergency. There are several forms:
Marasmus is marked by the severe wasting of fat and muscle, which the body has
broken down for energy, leaving “skin and bones”. It is the most common form of
PEM in nutritional emergencies.
Kwashiorkor is characterized essentially by oedema (swelling which usually starts in
the feet and legs), sometimes accompanied by a characteristic skin rash and/or changes
in hair colour (reddish). The hair becomes sparse.
In Marasmic kwashiorkor there is a combination of severe wasting and oedema.
Children under 5 years are usually the most affected, but older children and adults are also
often at risk or affected. The treatment of severe forms of PEM is presented in the section on
selective feeding programmes.
Vitamin and mineral deficiencies can cause long-lasting or permanent disabilities and can be
fatal. The deficiencies most likely to occur include:
Iron deficiency (1) causes anaemia. (signs: pallor of skin and eyelids, fatigue, weakness
and shortness of breath); (2) increases the risk of haemorrhage, infection and death
associated with childbirth; (3) increases rates of low-birth-weight and (4) impairs the
cognitive development of infants and children.
Iodine deficiency causes not only goitre but also some impairment of intellectual de-
velopment of children and of reproductive performance in women. Severe maternal
deficiency can cause cretinism in the offspring. Best prevented in emergencies by the
use of Iodized salt.
Vitamin A deficiency causes Xerophthalmia, blindness and death. Eye signs: poor vision
in dim light, dryness of conjunctiva or cornea, foamy material on the conjunctiva or
clouding of the cornea itself. These signs may appear after several months of an inade-
quate diet, or following acute or prolonged infections, particularly measles and diar-
rhoea.
Vitamin B1 (Thiamine) deficiency causes beri-beri. Symptoms and signs: loss of ap-
petite, malaise and severe weakness, especially in the legs; may also lead to paralysis of
the limbs or swelling of the body, heart failure and sudden death. Beri-beri occurs
when the diet consists almost exclusively of white polished rice or starchy staple such
as cassava.
Vitamin C deficiency causes scurvy. Signs: swollen gums which bleed easily, swollen
painful joints, easy bruising. This occurs due to a lack of fresh vegetables and fruits.
Niacin deficiency causes pellagra. Signs: skin rash on parts of body exposed to sunlight;
diarrhoea; and mental changes leading to dementia. This occurs especially where
maize and sorghum are the staples and there is a lack of other foods.
Prevention involves ensuring that people receive or have access to a variety of foods that con-
tain sufficient quantities of essential vitamins and minerals. This also includes fortified food
items distributed in food aid, access to local markets, and produce from home gardens.
Treatment consists of administering therapeutic doses of the missing nutrients. The distribu-
tion of multi-vitamin tablets to the entire refugee population is a waste of time and money,
since they contain insufficient quantities of individual vitamins to correct deficiencies.

FoodandNutrition15
207
Annex 4 – Reporting Form: Supplementary Feeding Programme
Country: Period: Total population:
Location: Under (<) 5 population
Agency: Moderate malnutrition rate:
Target <5 (moderate malnutrition rate *<5 pop):
Theoretical coverage <5 (new total (J)/Target):
< 5 years ≥ 5 years Pregnant Lactating TOTAL
M F M F women women
Total at end of last
month (A)
New Admissions:
< 80% WFH or
< -2 Z-score
Others
Total New
Admissions (B)
Re-admissions (C)
Total Admissions
(D=B+C)
Discharged
in this period:
Discharges (E)
Deaths (F)
Defaulters (G)
Referrals (H)
Total Discharged
(I=E+F+G+H)
New Total at end
of this month
(J=A+D-I)
Average length of stay in the programme
(from all or a sample of 30 recovered children) (target <60 days) =
Total No of days of admission of all (or 30) recovered children
No of recovered children (or 30)
Comments:
CATEGORIES
percentage
for <5 yrs
(target):
E/I*100%=
(>70%)
F/I*100%=
(<3%)
G/I*100%=
(<15%)

208
Annex 5 – Reporting Form: Therapeutic Feeding Programme
Country: Period: Total population:
Location: Under (<) 5 population
Agency: Moderate malnutrition rate:
Target <5 (moderate malnutrition rate *<5 pop):
Theoretical coverage <5 (new total (J)/Target):
< 5 years ≥ 5 years Adults TOTAL
M F M F M F
Total at end of last
month (A)
New Admissions:
< 70% WFH or
< -3 Z-score
Kwashiorkor
Others
Total New
Admissions (B)
Re-admissions (C)
Total Admissions
(D=B+C)
Discharged
this month:
Discharged (E)
Deaths (F)
Defaulters (G)
Referrals (H)
Total Discharged
(I=E+F+G+H)
New Total at end
of this month
(J=A+D-I)
CATEGORIES
percentage
for <5 yrs
(target):
E/I*100%=
(>75%)
F/I*100%=
(<10%)
G/I*100%=
(<15%)
Causes of death:
Average weight gain during last month (from all or a sample of 30 children) (target: >8 g/kg/day) =
weight at end of month (or on exit) – lowest weight recorded during month
lowest weight recorded in last month x No of days between lowest weight recorded and end of month (or on exit)
Average weight gain for marsmus (include only children in phase II) =
Average weight gain for kwashiorkor (include only children in phase II after complete loss of oedema) =
Average length of stay in the programme (from all or a sample of 30 recovered children) (target <30 days) =
Total No of days of admission of all (or 30) recovered children
No of recovered children (or 30)

FoodandNutrition15
209
Annex 6 – Nutrition Survey Reporting Form
Country:
Camp:
Date of reporting:
Other results:
(mean Z-score, mean SD, family size, % children in each category that is attending feeding center)
Comments/Observations:
Action/Intervention:
Population Male Female Total
number % number % number
total population
under five population
Survey
date: ............/............/............/
method: random – systematic – cluster
sample size:
under five population Male Female Total
(6-59 month or 65-110 cm) number % number % number
Results
weight-for-height weight-for-height
% median Z-score
category number % confidence category number % confidence
interval interval
<70% and/or ≤3 and/or
oedema oedema
>70 ≥3 nd ≥2
and >80%
total total

Overview
Assessment and Organization 7 -18 213-217
Assessment
Organization
The Need 19-34 217-218
Quantity
Quality
Immediate Response 35-43 218-219
Water Supply Systems 44-46 219-220
Water Sources 47-65 220-222
Introduction
Surface Water
Rain Water
Groundwater
Sea Water
Municipal and Private
Systems
Pumping Equipment 66-73 222-223
Treatment 74-92 223-227
Introduction
Storage and Sedimentation
Filtration
Chemical Disinfection
Boiling
Storage 93-97 226-227
Distribution 98-106 227
Key References 227
Figures
Figure 1 (a and b):
Needs and Resources Assessment for Planning
an Emergency Water Supply System 214
Figure 2: Drawing Water from a River 215
Water16
211

Situation
Water is essential to life and health. In emergencies, it is often not available in adequate quantity
and quality, thus creating a major health hazard.
Objective
To provide sufficient safe water for the refugees and to meet communal needs in the most cost-
effective way.
Principles of response
q Give priority to quantity while respecting quality;
q Refugees should be directly involved in the development and operation of the water supply;
q Ensure consideration of water supply at the site selection and planning stages and coordinate
response closely with physical planning, public health and environmental sanitation measures;
q If at all possible, avoid the need to treat water – it is better to use a source that does not
need treatment. Treatment plants must always be correctly operated and maintained. If large
numbers of refugees are concentrated in camps, disinfection of drinking water is absolutely
necessary. Other types of treatment should be considered according to the characteristics of
the raw water;
q Provide a reserve supply and spare capacity to meet temporary difficulties and the needs of
new arrivals;
q Take account of seasonal variations in water quantity and quality;
q Seek expert advice and coordinate closely with the appropriate national services.
Action
q Calculate the water requirement and organize an immediate assessment of water supply
possibilities;
q Make an inventory of water sources and assess all sources in terms of their water quality and
yield;
q Protect existing water sources from pollution and provide good quantities of water of a rea-
sonable quality;
q Improve access to supplies by developing sources and a storage and distribution system to
deliver a sufficient amount of safe water, including a reserve supply;
q Ensure regular testing of water quality;
q Set up infrastructure for operation and maintenance;
q Maintain and update information on water resources obtained during needs assessment;
planning, construction, operation and maintenance.
212

Introduction
1. People can survive longer without food
than without water.
Adequate storage capacity and back up systems
for all components of a water system must be
assured; interruptions in the supply may be
disastrous.
2. If it is evident that available sources are
inadequate (in terms of yield or water qual-
ity), arrangements must be made to find alter-
native sources. If necessary, water may have to
be imported to the site (by truck, barge,
pipelines, etc.). Where even the most basic
needs for water cannot be safely met by exist-
ing resources, or when time is needed for
further exploration and development of new
sources, refugees should be moved to a more
suitable location.
3. Water quality is difficult to assess. Always
assume that all water available during emer-
gencies is contaminated, especially if it is
taken from surface water bodies (lakes, ponds,
rivers, etc.). All sources of water used by
refugees must be separated from sanitation
facilities and other sources of contamination.
In many circumstances, treatment will be
needed to make the water safe to drink.
Safety of the water must be assured right
through to its consumption in the household.
4. As it is difficult to predict the life-span
of a refugee camp, it is best to plan on a cost-
effective, long-term basis.
5. Figure 1 (a and b) shows some of the con-
siderations for planning an emergency water
supply system.
6. The sectors of water, sanitation and site
planning are highly interdependent. This
chapter should be read in conjunction with
the chapters on these topics.
Assessment and Organization
x An immediate, on the spot, assessment of
local water resources in relation to needs is
essential;
x Technical expertize is required and local
knowledge is most important. Outside ex-
pertize should be brought in only when
clearly necessary;
x Involve the refugees, use their skills and train
them to operate and maintain the system;
x Technology and equipment should be sim-
ple, reliable, appropriate and familiar to the
country;
x Refugees may compete with the local popu-
lation for water resources. This may cause
problems between the two groups;
x Available sources must be protected from
pollution at once;
x The water supply system must be supported
by appropriate environmental health meas-
ures and hygiene.
7. The government’s central and local au-
thorities should be involved as much as possi-
ble in this assessment. Knowledge of the local
terrain and conditions is indispensable and
expertize from outside the country should be
brought in only when clearly necessary.
An immediate, on the spot assessment in
relation to needs is essential.
The provision of water demands immediate
attention from the start of a refugee emer-
gency. The aim is to assure availability of
enough water to allow its effective distribu-
tion in the required quantities, and to en-
sure that it is safe to drink.
Water16
213

214
Needs Assessment
1. Estimation of total daily needs
2. Initial water resources assessment
Hydrogeological
survey
Can water
be made available
at this site?
Is sufficient
water
available?
Can an
adequate system
be put in place
in time?
Is source
rain, surface or
groundwater?
Figure 1a – Needs and Resources Assessment
General considerations for planning an emergency water supply system
Well digging,
portable rigs
Conventional rotary
drilling
“Down the hole”
hammer drilling
Spring
Is aquifer
consolidated or
unconsoli-
dated?
Select new site
Is the
water safe to
drink?
Surface water Rain water Groundwater
Groundwater
No
Yes
Yes
No
Yes
Unconsolidated Consolidated
Water tanker operation
No

Water16
215
Figure 1b – Needs and Resources Assessment
General considerations for planning an emergency water supply system
Protect source
and avoid
contamination
Is the
water safe to
drink?
Is
gravity
flow possible
for all the
system?
Yes
Distribution system
Pumping system
No
Yes
Surface water
source
1. Control access
to source
2. Storage as simplest
immediate treatment
1. Eliminate obvious
external contamination
2. Improve sanitary
conditions at the well
Groundwater
source
Yes
Is the water
safe now?
No
Assessment of treatment
requirements
Design of treatment system
No

8. Available sources must be protected
from pollution at once. Rationing of scarce
water may be needed initially in order to en-
sure survival of the weak and equity in distri-
bution to the rest of the refugee population.
The design and construction of a water supply
system should be cost-effective and efficient
bearing in mind long term needs, and should
use simple but appropriate technology to fa-
cilitate operation and maintenance.
Assessment
9. The objective of an assessment of water
resources for human consumption is to ascer-
tain the availability of water (its quantity and
quality) in relation to the demand.
10. Estimating the need, or demand, for
water does not require special expertize, how-
ever, the assessment of supply possibilities
does. Assessing the supply means identifying
possible sources, and assessing the potential
for developing and exploiting those resources.
11. Sources of water can be identified by:
the local population, the refugees themselves,
the lie of the land (groundwater is often near
the surface in the vicinity of rivers and in other
low places; its presence at shallow depths is
usually indicated by some types of vegeta-
tion); maps (topographical, geological), remote
sensing imagery (satellite images, aerial photo-
graphy), previous surveys of water resources;
national or foreign experts (hydrologists,
hydro-geologists); and water diviners.
12. Assessing the water resources requires
expertise in for example water engineering,
sanitation and in some cases logistics. It in-
cludes assessing topographical advantages
(gravity) and disadvantages (pumping require-
ments), and analysing the overall environment
of the refugee sites. Further surveys will be
necessary to organize the water supply system
and should cover relevant information on the
refugees, other beneficiaries, and the socio-
economic characteristics of the host commu-
nity. The results of such assessments and
surveys should be systematically filed to en-
sure that such data will be available for future
reference.
13. UNHCR maintains a standby arrange-
ment with certain organizations whereby
qualified and experienced water engineers
and other experts can be provided at short
notice for deployment to emergencies. (See
Appendix 1, Catalogue of Emergency Response
Resources, for further details). If it becomes
clear that locally available expertize will not
suffice, assistance from the Programme and
Technical Support Section at Headquarters
should be requested without delay.
14. Seasonal factors must always be carefully
considered.
Local knowledge, historical and hydrological
information and statistical interpretation
should all be taken into account to determine
the seasonal patterns.
Organization
15. Bear in mind that the economic and
social bases of refugee groupings differ from
those of the host communities. In addition, an
influx of refugees may over-strain water re-
sources used by the local population and lead
to tension between the two groups. Special
arrangements should be made with local
authorities and other implementing partners
for adequate operation and maintenance
arrangements; the technology used in the
water supply systems should be carefully eval-
uated to ensure it is appropriate and that long
term operational needs (fuel, spare parts,
management, etc.) will be within reach of the
refugees and camp managers.
16. The provision of safe water could be-
come impossible without the beneficiaries’
understanding and cooperation. To the extent
possible the system should be developed in
collaboration with the refugees who should
be involved with its operation and mainte-
nance from the start.
Refugees without prior experience should be
trained.
17. In order to be effective, water quality
control and treatment have to be combined
with improved personal hygiene and envi-
ronmental health practices. Basic public
health education stressing the importance of
avoiding pollution of the water by excreta
and of the use of clean containers in the
household, will be essential. The water supply
system design and construction must be
closely coordinated with site planning and
layout and must be supported by health,
education and environmental measures, in
particular sanitation.
Even the best system needs continuing
maintenance, otherwise it will break down.
Supplies that are adequate in the rainy sea-
son may dry up at other times.
216

Where pumps and other mechanical equip-
ment are necessary, supplies should be stan-
dardized as far as possible.
Local familiarity, availability of spare parts,
fuel and ease of maintenance are priority con-
siderations.
18. Both organizational and technical aspects
of the complete water supply system need to
be carefully monitored. The use of the system
must be controlled and water wastage or
contamination prevented. Maintenance must
be assured, and technical breakdowns quickly
repaired.
The Need
x Demand: Calculate on at least 15 litres per
person per day. Absolute minimum survival
allocation is 7 litres per day.
x Quality: To preserve public health, a large
amount of reasonably safe water is prefer-
able to a smaller amount of very pure water;
x Control: The water must be safe: test the
physical, chemical and bacteriological qual-
ity of new sources before use and regularly
thereafter, and immediately following an
outbreak of a disease which might be caused
by unsafe water.
Quantity
19. Minimum water needs vary: it increases
with air temperature and physical exercise. As
a general indication, the following amounts
of water are desirable:
20. Further needs may include: livestock,
sanitation facilities, other community services,
irrigation and construction of camp infrastruc-
ture (e.g. roads or concrete structures). The
more convenient the supply, the higher will be
the consumption.
21. Give priority to quantity while respecting
quality. A reduction in the quantity of water
available to individuals will directly affect the
overall health status of the refugee popula-
tion. As supplies are reduced, personal and
domestic hygiene suffers, and the reduction is
reflected in increased incidence of parasitic,
fungal and other skin diseases, and diarrhoeal
diseases. Even those individuals who may have
traditionally lived on less than the normally
recommended amount of water will require
more water when living in a refugee camp, be-
cause of crowding and environmental factors.
22. The availability of water will be a factor
in deciding on a sanitation system. Pit latrine
systems do not need water to function; but
showers, washing, laundry or pour-flush toilet
facilities all require water.
23. Water will also be needed for livestock in
many refugee situations. Take great care to
avoid pollution or depletion of scarce water
resources by livestock, separation of human
water supply points from those used by ani-
mals is a must. As a rule of thumb, cattle need
about 30 litres of water daily. Water will also
be needed to irrigate food (vegetable gar-
dens, crops) cultivated by refugees. Annex B
of UNHCR’s Water Manual provides additional
indicative figures on water requirements in-
cluding livestock and agricultural crop needs.
24. Water will probably be of little use in
controlling major fires on refugee sites owing
to a lack of sufficient quantity and pressure.
Quality
25. The water must be both acceptable to
the refugees and safe to drink. Water that
tastes and looks acceptable will be drunk by
refugees who may unknowingly expose them-
selves to the dangers from microbiological or-
ganisms. Water-borne diseases are not usually
as serious or widespread a problem as the wa-
ter-washed diseases such as skin and eye infec-
tions which result from insufficient water
from personal hygiene.
Thus, a large quantity of reasonably safe
water is preferable to a smaller amount of
very pure water.
If more refugees are expected to arrive,
plans must allow for a substantial spare
capacity over the initially assessed needs.
Minimum daily requirements:
Minimum survival allocation: 7 litres per
person per day. This should be increased to
15-20 litres per person as soon as possible.
Communal needs and a spare capacity for
possible new arrivals should be added.
Health centres: 40-60 litres per patient
per day;
Feeding centres: 20-30 litres per patient
per day.
Locally available material and equipment
should be used as much as possible.
As a general rule, technology should be kept
simple. It should be appropriate to the coun-
try and should draw on local experience.
Water16
217

26. The most serious threat to the safety of
a water supply system is contamination by
faeces; once the water has been contaminated
it is hard to purify it quickly under emergency
conditions.
27. Water may contain pathogens, particu-
larly certain viruses, bacteria, protozoan cysts
and worm eggs which are transmitted from
faeces to mouth. Water contamination by
human faeces is the major concern, although
animal faeces in water may also cause disease
transmission. Water contamination by urine is
a significant threat only in areas where urinary
schistosomiasis (Schistosoma haematobium) is
endemic.
28. Diarrhoea and dysentery are caused by a
variety of viruses, bacteria and protozoa. The
numbers of viruses and protozoa in water will
always decrease with time and will always de-
crease most rapidly at warm temperatures.
Bacteria behave similarly, but in exceptional
circumstances may multiply in polluted water.
The infectious dose of the viruses and proto-
zoa is typically very low, whereas the dose of
bacteria needed to establish an infection in
the intestine may be large.
29. New water supplies should be tested for
bacteriological quality before use and existing
ones checked regularly and tested again im-
mediately following any outbreak of disease
which might be caused by unsafe water.
30. Potability analysis involves studying the
chemical, physical and bacteriological charac-
teristics of the water. Although it is possible to
examine water for a specific pathogenic or-
ganism, a much more sensitive test for routine
analysis uses an indicator organism, called
Escherichia coli (coliform, or E-coli), which is a
normal inhabitant of the intestine of warm-
blooded animals and is excreted in large num-
bers. If these bacteria are found in water,
faecal pollution is indicated and the sample is
therefore potentially dangerous.
By far the greatest risk associated with pol-
luted drinking water is the spread of diar-
rhoea, dysentery and infectious hepatitis
(Hepatitis A).
31. Concentrations of faecal coliform are
usually expressed per 100 ml of water. As a
guide:
32. In cases where the water is disinfected by
chlorination, it is easier and more appropriate
to test for the presence of free available chlo-
rine than for bacteria. The presence of free
chlorine in the range between 0.2 mg/l and
0.5 mg/l at the distribution point shows that
the bacteria have almost certainly been killed
and that the water cannot be heavily polluted
with faecal or other organic matter.
33. The water must, of course, be safe at the
time of consumption or use in the household,
not just at the distribution point. Domestic
hygiene and environmental health measures
to protect the water between collection and
use are important. The water in storage tanks
and any tanker trucks should also be tested
periodically.
34. Where drinking water is scarce, use non-
potable, brackish or salty water for washing.
Immediate Response
x If even the minimum amount of water can-
not be made available in time from local
sources, the refugees should be moved.
x Whatever the water source, take immediate
action to prevent pollution by excreta. (See
chapter 17 on environmental sanitation for
further details).
x Organize a distribution system that pre-
vents pollution of the source and ensures
equity if there is insufficient water.
35. Short-term emergency measures may be
necessary while the longer term supply system
is being developed or pending the move of the
refugees to a more suitable site. If the locally
available water supply is insufficient to meet
the minimum needs of the refugees, arrange-
ments must be made to bring in water by truck.
36. If this is not possible, the refugees must
be moved without delay. Often, however,
the quantity of water available will meet ini-
tial minimum needs; the immediate problem
would be water quality.
218
1 - 10 reasonable quality
10 - 100 polluted
100 - 1000 very polluted
> 1000 grossly polluted
Faecal Water Quality
Coliform/100 ml

37. The refugees will be using either surface
water or, less often, ground water (well or
springs) – usually whatever water is closest, re-
gardless of quality. Whatever the water
source, take immediate steps to prevent pollu-
tion by excreta.
38. Work with community leaders to organ-
ize the refugee community and make the
community aware of the possibilities and dan-
gers of existing water sources and convey the
idea of trying to prevent pollution of these
sources by excreta. If the source is flowing,
supplies must be drawn off upstream and a
special area set aside for this. Then allocate an
area for washing, and finally downstream of
the settlement, allow any livestock to drink
(see figure 2). Fence off parts of the river
banks as necessary, and beware of any dan-
gers in the water, such as reptiles.
39. Where the source is a well or spring,
fence off, cover and control the source.
40. If possible, arrange to store water and to
distribute it at collection points away from the
source. Not only does this help avoid direct
contamination but storage can make water
safer.
41. From the start, families will need to be
able to carry and store water at the household
level. They must be able to transport at least
10 litres (from water distribution points to the
household) and store at least 20 litres per
household (1 household = 5 persons). Suitable
containers (10-20 litres) are essential. Collapsi-
ble jerry-cans are recommended, especially
when their transportation to the site may
involve airlifts. Jerry-cans must have narrow in-
lets to prevent contaminating objects getting
in. For this reason, buckets and other wide
necked containers are not recommended.
Sometimes empty cooking oil containers or the
like are available which may be appropriate.
42. Rationing is difficult to organize. The first
step is to control access to the sources, using
full-time guards if necessary; uncontrolled
distributions are open to abuse. Distribution at
fixed times for different sections of the site
should be organized. Vulnerable groups may
need special arrangements. Every effort must
be made to increase the quantity of water
available so that strict rationing is unnecessary.
43. In parallel to these steps, action must be
taken to improve the quantity from existing
sources and the effectiveness of any distribu-
tion system. Plan how the need for water may
best be met in the longer term. The following
sections outline the main considerations.
Water Supply Systems
(See Water Manual, Chapter 12)
x A water supply system is a combination of
structures (intakes, pumping sets, treat-
ment, storage and distribution facilities and
drainage outlets) necessary for the produc-
tion (collection, treatment, storage) and
distribution of potable water;
x Ensure the system components are compati-
ble with each other and appropriate in view
of the supply and demand, and can be
maintained from locally available resources
and at the lowest possible cost;
x The system will have to be planned, de-
signed, constructed and put into operation
in a short period of time (involving the
refugee population as much as possible).
The complexity of the task requires profes-
sional expertize which should be sought at
the beginning of the project. Pay attention
to long-term operation and maintenance
requirements from the start.
44. As soon as possible, make an overall plan
for the longer term water supply system. At
least some elements of the plan will be prob-
lematic – there is often a lack of basic data or
difficulty in obtaining the planning or design
tools (cartography, hydrological data, etc.).
The following steps should be taken:
i. Search for adequate sources;
ii. Preliminary surveys. Assess water quantity
and quality (see above). Assess topogra-
phical advantages (gravity) and disadvan-
tages (pumping requirements). Collect
additional, relevant information on the
refugee community, on any other benefici-
aries, on the social and economic charac-
teristics of the host community, on the
overall environmental framework of the
refugee sites;
If the immediately available supplies of wa-
ter are insufficient, action to ration supplies
and to ensure equitable distribution will be
a priority.
Prevent refugees from drawing water with
individual containers that may contaminate
the source.
The best immediate response is likely to be
organizational.
Water16
219

iii. Implementation arrangements. Analyze
the possibilities and constraints of all par-
ties interested in the project and allocate
responsibilities for project implementa-
tion, including operation and mainte-
nance. Clarify arrangements for funding,
contractual procedures, project monitor-
ing, financial matters and reporting;
iv. Production of the design concept (see
Chapter 12, paragraph 2, UNHCR’s Water
Manual). Consider the alternatives, taking
into account implementation time, technol-
ogy considerations and cost-effectiveness;
v. Detailed surveys. To refine all aspects and
details of the adopted design. These in-
clude further water analyses, identifying
building materials, further measurements
of water production at sources, detailed
topographical surveys of the position of
water sources, storage tanks and distribu-
tion points;
vi. Production of final designs;
vii. Organization of refugee involvement on
the project. Identify relevant skills and
expertize among the refugees. Organize
refugee committees;
viii. Implementation of the project. Besides
construction, other inputs are required,
such as the technical supervision to ensure
that construction is carried out in accor-
dance with previously approved plans and
that payments for construction reflect the
real value of the works accomplished;
ix. Organization of operation and mainte-
nance, including the organization of a
committee in which refugees and relevant
assistance sectors are represented (health,
sanitation, community services). Ensure
there is continuous engineering support
and employ a caretaker or a group of care-
takers to carry out the operation and
maintenance tasks.
45. See UNHCR’s Water Manual for additional
information and details on these issues (chapter
6, paragraphs 1, 36; chapter 11, paragraphs 2,
3, 11; chapter 12, paragraphs 5, 12-8, 16).
46. An ill-conceived or badly managed water
supply system will soon create problems. The
long-term needs of the refugees should be
considered while searching for solutions to
the emergency needs. All efforts to avoid
long-term problems will prove, with time, very
valuable.
Water Sources
(See UNHCR Water Manual Chapter 6)
x Rain water, groundwater from springs and
wells or water from municipal and private
systems are usually of better quality than sur-
face water from sources such as rivers, lakes
or dams and should be used if available;
x Surface water should be considered to be
contaminated and must be treated prior to
use;
x Physical protection of the source from pol-
lution will be essential;
x New or repaired sources and equipment
should be disinfected before use;
x Develop a data bank of water sources.
Introduction
47. There are three main natural types of
fresh water: surface water (streams, rivers,
lakes), groundwater (underground or emerg-
ing as springs) and rain water.
48. Considerations in choosing between al-
ternative sources of water in an emergency in-
clude:
i. Speed with which source can be made op-
erational;
ii. Volume of supply;
iii. Reliability of supply (taking into account sea-
sonal variations and, if necessary, logistics);
iv. Water quality, risk of contamination and
ease of treatment if necessary;
v. Rights and welfare of local population;
vi. Simplicity of technology and ease of main-
tenance;
vii. Cost.
49. Take careful account of systems and
methods already in use locally. Adoption of
well-proven and familiar techniques, combined
with action to improve protection against
pollution is often a sound solution.
50. Besides organizational measures to pro-
tect the water supply, some form of treatment
may be necessary. However, if possible use
sources that do not require treatment. The
treatment of unsafe water, particularly in re-
mote areas, can be difficult and requires
trained supervision to be reliable.
51. Gather as much technical information as
possible on the different water sources to
allow a simple cost-benefit analysis of alterna-
tive solutions. The decision on which sources
220

to develop and the technological approaches
to be used should take into account the need
to develop systems to efficiently cover both
immediate and longer-term needs.
Surface Water
Rainwater
52. Reasonably pure rain water can be col-
lected from the roofs if these are clean and
suitable. This method can only be the major
source of water in areas with adequate and
reliable year-round rainfall; it requires suitable
shelter and individual household storage facil-
ities. It is, therefore, not a suitable solution in
most refugee emergencies.
53. Small rainwater collection systems, for
example using local earthenware pots under
individual roofs and gutters, should be encour-
aged. Allow the first rain after a long dry spell
to run off, thus cleaning the catchment of
dust, etc. The supply of water that may be col-
lected by this method is estimated as follows:
54. One millimeter of yearly rainfall on one
square metre of roof will give 0.8 litres per
year, after allowing for evaporation. Thus, if
the roof measures 5 x 8 metres and the aver-
age annual rainfall is 750 mm, the amount of
rain water which may be collected in a year
equals: 5 x 8 x 750 x 0.8 = 24,000 litres per year
or an average of 66 litres per day (on many
days there will be none).
55. Rain water may be a useful supplement
to general needs, for example through special
collection for community services such as
health and feeding centres, where the safety
of water is most important. It should also be
noted that surface water is particularly likely
to be contaminated in the rainy season. Thus
rain water may be a useful source of safe
water for individual use at a time when other
water is plentiful but unsafe.
Groundwater
56. Groundwater is contained in aquifers.
Aquifers are rocks or groups of rocks capable
of transmitting, storing and yielding water.
They may be formed by loose sediments (silt,
sand, gravel), fractured rocks or otherwise
porous rocks (fractured lavas, granites, meta-
morphic rocks, sandstones, etc.). The microbio-
logical quality of groundwater is usually very
good in view of the filtration undergone by
water in its transit through rock pores (An
exception to this filtering effect is when the
size of the fractures in the rock is large.)
57. The use of groundwater during refugee
emergencies would almost always be the
preferred solution: if available, groundwater
usually provides the most cost-effective alter-
native to obtain quickly the necessary quantity
and the best quality. However, the decision to
use it for long term needs should be made af-
ter a detailed assessment of the aquifer and
all factors relating to the recharge, transmis-
sion and release of water and on the availabil-
ity of relevant expertize and equipment.
58. Water from a spring is usually pure at the
source and can be piped to storage and distri-
bution points. It should be taken off from
above the refugee camp site if possible. Care
should be taken to check the true source of
spring water, as some apparent springs may
really be surface water which has seeped or
flowed into the ground a short distance away.
The yield of water from a spring may vary
widely with the seasons. It will be at its mini-
mum at the end of the dry season and early in
the rainy season. Seek local advice.
59. This can be by a simple structure built of
bricks, masonry or concrete, from which the
water flows directly through a pipe to a tank
or collection point. Care must also be taken to
prevent contamination above the take off
points.
60. Groundwater can be raised by infiltra-
tion galleries, tube wells, dug wells or bore-
holes. (Infiltration galleries extract ground-
water horizontally, for example through
tunnels and/or ditches). The choice of method
will depend on the depth of the water table,
yield, soil conditions and availability of exper-
tize and equipment.
If the need for water cannot be met by
springs, the next best option is to raise
groundwater.
It is essential that spring water be protected
against pollution at the source.
Springs are the ideal source of groundwater.
Every effort should be made to collect as
much rainwater as possible.
Water from streams, rivers, ponds, lakes,
dams and reservoirs is rarely potable; its
direct use is likely to require treatment meas-
ures that may be complicated to plan and im-
plement during most refugee emergencies.
Water16
221

61. Without good groundwater resource
surveys, preliminary test drilling, or clear local
evidence from nearby existing wells, there is
no assurance that new wells or boreholes will
yield the necessary amount of water of the
right quality. They can also be expensive.
62. The yield of infiltration galleries, wells or
boreholes depends on the geological forma-
tion in which they are constructed, the topo-
graphical characteristics of the site, the
construction techniques and the pumping
equipment to be used. Any new well or bore-
hole must first be developed to full yield by an
initial period of pumping at a fast rate. This
pumps out finer soil particles, allowing water
to pass more easily into the well. Yields can be
raised by increasing the size of the well below
the water table, for example in the case of a
shallow well, by an infiltration gallery across
the line of groundwater flow. If wells are sited
too close together, yields will be reduced.
63. Wells, boreholes, infiltration galleries
and pumps should be disinfected immediately
after construction, repair or installation, as
they may have been polluted during the work
– two or three buckets of a 2.5% chlorine solu-
tion in water would be a suitable disinfectant.
They should be located where surface water
and, in particular, any seasonal rain or flood
water, will drain away from the well head.
They should be above and at least 30 metres
away from any sanitation facilities and their
discharge. Special techniques are used in the
design and construction of these facilities to
avoid the pollution of their water.
Sea Water
64. Sea water can be used for almost every-
thing but drinking, thus reducing fresh water
requirements. In locations where no adequate
sources of fresh water exist but where sea
water is near, desalinisation is one possible but
costly option. Neither of the two basic meth-
ods – distillation using the sun’s heat nor the
use of modern desalinisation plants – is likely
to meet immediate fresh water requirements
in a major refugee emergency, and is there-
fore strongly discouraged. If no fresh water
sources are available at a given site, relocation
of the refugees must be considered as a mat-
ter of urgency.
Municipal and Private Systems
65. Existing municipal and private water
supply systems in the vicinity of the refugees,
for example those belonging to industrial or
agricultural establishments, may be able to
meet part or all of the need during the emer-
gency phase and should be used where possi-
ble before taking unnecessary measures to
develop other sources. A substantial increase
in the yield and quality of such systems may be
possible.
Pumping Equipment
(See UNHCR Water Manual, chapter 7)
x Pumps will generally be needed in refugee
emergencies. Seek expert local advice
on what is suitable and remember that
operators, fuel and spare parts will be
needed;
x As much as possible, use gravity rather than
pumps for water distribution and treatment
systems;
x Emergency water supply solutions involving
pumps should be designed to ensure long-
term and effective operation: avoid ad-hoc
solutions;
66. Once an adequate source of water has
been established, arrangements are needed to
store and distribute the water to meet mini-
mum needs.
67. In areas subject to seasonal flooding, or
where the level of a river source varies
markedly, great care must be taken in placing
any pumps, distribution, storage and treat-
ment systems. It may even be necessary to
mount a pump on a raft.
68. Water can be raised in two basic ways:
by hand, using some kind of water container
or bucket, or by using pumps (which may be
driven by hand or engine). Nobody should be
allowed to put individual containers into the
source. A captive rope and bucket carries a
low pollution risk. In this system, only the
single rope and bucket that is fixed to the
well is used to draw water – refugees fill their
own containers from this captive bucket. The
system is more reliable and much cheaper
than a pump.
The distribution system should use gravity
whenever possible: gravity fed systems are
much less costly and easier to maintain than
pumping systems.
A hydrogeological survey must be under-
taken before starting any extensive drilling
programme.
222

69. The main uses of pumping equipment in
refugee water supply systems are:
I. Pumping water from wells or boreholes;
ii. Pumping water from surface water intakes;
iii. Pumping water into storage reservoirs.
70. Additionally there may be a need to use
pumping equipment for other purposes, for
example, feeding water treatment plants,
boosting the flow through long pipelines,
feeding water tankers. Gravity flow systems
should be used as much as possible for these
purposes as a way to minimize pumping re-
quirements.
71. All pumps have moving parts and re-
quire regular maintenance. Professional ad-
vice should be sought on the selection and
placing of pumps. Local familiarity, fuel sup-
plies, spares, ease of maintenance and, above
all, reliability, will be the major considerations
in pump selection. Hand-pumps may be
appropriate because they reduce dependence
on outside supply of spare parts and fuel.
However, in a refugee emergency, the sudden
and large concentration of people requires
maximum output of available water. Motor-
ized pumps have a far greater output and
may, therefore, be indispensable.
72. In some circumstances, pumps powered
by solar panels may be suitable. The currently
available pumps are expensive for their out-
put but very reliable and involve no direct
running costs. The pumps naturally work best
in direct sunlight but will still work with light
cloud cover. A solar pump might be a solution
when the output of a handpump would be
insufficient but large mechanised pumps are
not necessary.
73. The theoretical capacity required of the
pump depends on available storage, likely
demand, and variations in demand through-
out the day. A reserve for breakdowns, new
arrivals, etc. should be provided. The mini-
mum daily period during which a pump
should be idle is that required to allow the
level of water in the source to recover to its
old level. Pumps should not be operated at
night. Always have a pump on standby in a
major supply system to cover repairs and
maintenance.
Treatment
(See Water Manual, Chapter 8)
x The most serious threat to safety of a water
supply is contamination by faeces;
x Only treat water to the extent necessary.
Disinfection of drinking water is required if
large numbers of refugees are concentrated
in camps;
x All water treatment methods require some
expertize, regular attention and mainte-
nance;
x In refugee emergencies, the priority is to
improve the physical and the bacteriological
characteristics of drinking water. Only under
very special circumstances would the im-
provement of chemical quality be considered;
x Cloudy or turbid water should be clarified
before disinfection because chlorinating
cloudy or turbid water is ineffective;
x Water purification tablets or boiling are not
generally appropriate for large scale water
treatment.
Introduction
74. The potability of any source has to be
assessed before a decision to use it for human
water supply is taken.
75. The importance of trying to find a source
that does not require treatment is obvious.
76. Correct plant operation and mainte-
nance must be assured. If large numbers of
refugees are concentrated in refugee camps,
disinfection of drinking water is absolutely
necessary. Other types of treatment should be
considered in accordance with the characteris-
tics of the raw water.
77. Determining how to treat water on a
large scale is best done by experts. However,
simple and practical measures can be taken
before such help is available. Full explanations
of all treatment methods applicable in refu-
gee emergencies are given in Chapter 8 of
UNHCR’s Water Manual. All methods require
regular attention and maintenance.
78. Besides the physical measures to protect
water at its source and initial disinfection of
water sources (usually by chlorine), there are
four basic methods of treatment: storage,
If treatment is necessary it should be the
minimum required to ensure acceptably safe
water, using appropriate technology and a re-
liable operational and maintenance system.
Where it can meet the demand, a hand op-
erated system is to be preferred. Not more
than 200 people should depend on a well
with one rope and bucket.
Water16
223

filtration, chemical disinfection and boiling.
These can be used singly or in combination.
Storage and Sedimentation
79. Storage is the simplest method of im-
proving water quality. It causes some
pathogens to die off and any heavy matter in
suspension to settle (“sedimentation”).
80. Storage of untreated surface water for
12 to 24 hours will already cause considerable
improvement in its quality; the longer the
period of storage and the higher the tempera-
ture, the greater the improvement. Be aware,
however, that in refugee emergencies, it is
very seldom that the amount of water avail-
able would be enough to allow the water
intended for drinking purposes to be stored
for more than a few hours before it is distrib-
uted to users. Where sedimentation tanks are
used, their capacity alone should equal one
day’s consumption, thus allowing sedimenta-
tion to take place overnight.
81. Longer storage time can help control
schistosomiasis (bilharzia), as the parasites die
if they do not reach the fresh water snail
within 24 hours of excretion by an infected
person, or if they do not reach a human or an-
imal host within 48 hours of leaving infected
snails. Thus two day’s storage would provide
an effective barrier to transmission of the dis-
ease, provided snails do not enter the tank.
82. Sedimentation clarifies cloudy water
which can be greatly speeded up by the addi-
tion of aluminium sulphate (Alum). A two-
tank system is often used, the first tank being
a settling tank with the second storing the
clarified water. If additional treatment (e.g.
chemical disinfection) is required, it can be
done in the second tank, and a third one used
for storage if necessary.
83. Great care should be taken to prevent
pollution of stored water. Storage tanks must
always be covered: the dangers of contamina-
tion of open tanks more than offset the ad-
vantages of direct sunlight. The storage area
should be fenced off, and if necessary
guarded, to prevent children playing or swim-
ming in the water.
Filtration
84. Sand filtration can be an effective
method of water treatment. A proper slow
sand filter works in two ways. Passage of the
water through the sand physically filters out
solids, and, more importantly, a thin and very
active layer of algae, plankton, bacteria and
other forms of life develops on the surface of
the sand bed. This is called the “schmutz-
decke”, where micro-organisms break down
organic matter.
85. The rate of filtration depends on the
surface area, depth and type of sand through
which water is passed, and the depth of water
above the level of the sand surface. The usual
size range of the sand is 0.3 - 1 mm. Provided
the rate of filtration is slow enough, the
quality of the treated water is very good.
86. Many types of sand filters are described
in the available technical guides (See key refer-
ences). A packed drum filter can be improvized
if drums and sand are available and this may
be a good way of providing limited quantities
of safer water quickly, for example for a health
centre. The water passes down through sand
on a 5 cm layer of gravel and is drawn off at a
rate that should not exceed 60 litres per hour
for a 200 litre drum. If a tap is used, unfiltered
water equal to the amount drawn off is simply
added to the top. Other types of sand filters in-
clude the slow sand filters, the horizontal sand
filters and the river bed filters or infiltration
galleries (suitable only where the bed is per-
meable). These can be used to treat larger
amounts of water but are likely to be more dif-
ficult to set up quickly and effectively. For a
river source a possible intermediate measure is
to dig a well close to the bank. The water re-
covered will be river water but will have been
filtered through the bed and bank.
Chemical Disinfection
87. Disinfection of water on a large scale is a
rule in all refugee emergencies. Purification of
wells, sand filters, pumps and piped water sys-
tems will be required initially. Iodine or various
forms of chlorine can be used for disinfection
and purification. Chlorine is more widely used,
cheaper and often more readily available. The
most generally suitable form of chlorine for
refugee emergencies is calcium hypochlorite
powder. Expert advice is essential for large-
scale chlorination. As with all other water
treatment methods, disinfection requires regu-
lar attention; it will be of little value if it is not
fully reliable. Whilst clear water usually only
requires chlorination, turbid water usually re-
quires sedimentation and/or filtration before
the chemical disinfection. Chlorination should
therefore take place after any sedimentation
Leaving water undisturbed in containers,
tanks or reservoirs improves its quality.
224

or filtration process has been undertaken. It re-
quires at least thirty minutes to act.
88. Care must be taken to ensure strict con-
trol of any chemical disinfection process and
particularly to test the water for chemical
residual levels after each disinfection and be-
fore distribution. After chlorination, and once
chlorine has reacted, (about 30 minutes after
dosage) there should be at least 0.5 mg/l
(0.5 parts per million) of free available chlo-
rine left in solution, in other words, still avail-
able to kill bacteria. The amount of chlorine
required to achieve this is usually a broad indi-
cation of the level of pollution. If the amount
of free available chlorine is much above
0.5 parts per million, people may not be pre-
pared to drink the water; over-chlorinated
water tastes unpleasant and will have the re-
verse of the desired effect if people therefore
prefer untreated water.
89. A pocket size chloroscope (chlorine com-
parator kit, preferably of the DPD1
type) tests
for residual chlorine levels. It consists of two
tubes, each containing a measured quantity of
the water under test, which can be visually
compared for colour. One of the two tube
samples is coloured by the addition of a chlo-
rine sensitive reagents (o-toludine, a common
reagent, should be avoided, as it decomposes
in hot climates; it is also a poor indicator if the
water has been over-chlorinated). The other
tube is looked at through a range of standard
coloured glass slides; the chlorine concentra-
tion can be read-off directly after matching
the colour of the tube with the added reagent
with that of the nearest standard. This test is
simple and all treatment plant attendants
should be trained to use it to check frequently
the water quality. In view of the fact that wa-
ter may be kept in storage, after chlorination,
for some time before distribution, and bear-
ing in mind that residual chlorine levels tend
to drop with time, it is important to ensure
any water leaving the plant should have, at
least, a residual chlorine content of 0.4 mg/l
(or parts per million) of free available chlorine
to be regarded as safe.
90. When chlorination equipment is not
working, the water should not normally be
distributed. Therefore to ensure a continuous
water supply, back-up chlorination equipment
should be available in any water treatment
plant.
91. Chlorine and iodine water purification
tablets are also available, but are rarely suit-
able for water treatment for large popula-
tions. They may be used in health or supple-
mentary feeding centres.
Boiling
92. Boiling is the surest method of water
sterilization. At low altitudes, water that is
simply brought to the boil can be assumed to
be free of pathogenic bacteria. Boiling should,
however, be continued for one minute for
every 1,000 metres of altitude above sea level,
as the boiling temperature reduces with alti-
tude. Prolonged vigorous boiling is often re-
commended but is not necessary to destroy
the faecal-orally transmitted pathogens; it
wastes fuel and increases the concentration of
nitrates in the water. Water with high nitrate
content is dangerous for very young babies.
Domestic fuel supplies may, in the longer
term, be the determining factor: boiling re-
quires about 1 kg of wood per litre of water.
However, if the refugees have traditionally
boiled their water and can continue to do so,
this should be encouraged and, at least ini-
tially, might make the need for other types of
treatment less urgent.
Water16
225
1
DPD is Diethyl-P- Phenylene Diamine.

Storage
x All refugee sites must be provided as soon
as possible with adequate water storage fa-
cilities;
x Water storage may be the only means of
ensuring a constant availability of water to
cover the needs of a camp population at a
given site;
x In general, use local technology for the de-
sign and construction of storage tanks or
reservoirs. However, using prefabricated
tanks may sometimes be the only way to
provide water quickly enough;
x Ensure that the size, location and overall
design of storage tanks are compatible with
all other system components and design
characteristics.
93. In nearly all systems, it will be necessary
to store water in covered tanks between the
sources and distribution points. As well as pro-
viding an essential reserve both during the
emergency and for long-term use, storage will
facilitate monitoring, collecting, treating and
distributing safe water.
94. The size of the reserve to be used will de-
pend on the number of people and on the na-
ture of the water supply system.
Water can be stored in various locations:
i. At the water collection point in tanks;
ii. In central storage tanks (before or after
treatment) to balance supply with demand
and to allow for gravity-fed distribution;
iii. At distribution points in tanks, including
public stand-pipes or other service points
at health centres, camp administration fa-
cilities, staff houses, etc.;
iv. At the refugee household level in small
containers. These containers should not be
the same as the ones used to collect and
transport water from distribution points.
95. Whatever the type of storage needed,
adequate enclosure should be provided to
prevent any contamination from humans, ani-
mals, dust or any other source. A tight cover
and dark storage also prevent algal growth
and breeding of mosquito larvae.
96. In areas with pronounced dry and rainy
seasons, the construction of a reservoir to
collect water may be an option, despite the
dangers of pollution and of mosquito breed-
ing. An erosion-protected overflow spillway
should always be provided in this case. Catch-
ment tanks for the collection of surface water
can also be considered. Pits are dug in the
ground to catch and hold the water which
runs off hard ground during heavy storms.
They need special lining to hold the water and
should be covered if possible.
97. Tanks above ground may be needed
where the water table is very high and con-
tamination cannot otherwise be avoided.
Many types of simple, air portable, butyl rub-
ber storage tanks are available, and some can
be supplied with a complete distribution sys-
tem. Headquarters’ advice should be sought if
local resources cannot meet this need.
Distribution
(see Water manual, Chapter 10)
x An appropriate water distribution system
should ensure an even coverage of water
needs among camp beneficiaries;
x Keep the distribution system simple;
x Under normal circumstances, water distribu-
tion in refugee camps should be carried out
through public distribution stand-pipes;
x The water distribution system should mini-
mize waste.
Refugees must have easy but controlled access
to water.
98. Experience has shown that where people
have to fetch water from considerable dis-
tances, they tend either not to fetch enough to
limit water-washed diseases or to collect water
from closer but contaminated sources. Water
distribution will be an important consideration
in the layout of the site. The areas round the
distribution points should be paved with
stones or gravel, or protected by boards, with a
run off structure to allow proper drainage.
99. Water can be distributed to individual
users in many ways, depending on local condi-
tions. Uncontrolled access by individual co
sumers to primary water sources should be
avoided.
A distribution system should have a suffi-
cient number of outlets to ensure that peo-
ple do not need to wait for long periods to
have access.
Ideally, no dwelling should be further than
100 metres or a few minutes’ walk from dis-
tribution points.
All refugee sites must be provided as soon
as possible with facilities to store an ade-
quate reserve of water.
226

100. Service and administrative buildings
should be provided with private connections.
101. While vulnerable groups (the sick,
wounded, most severely malnourished, chil-
dren, pregnant and lactating women and the
disabled) should have adequate and assured
allocations, scarce water must be evenly shared
among the rest of the population. Refugees
should be encouraged to assume responsibility
for equitable distribution. Arrangements should
be carefully monitored to detect and prevent
abuses. In some situations, water meters have
proved a cheap and effective way of identifying
excessive use and reducing consumption.
102. The main components of a water distri-
bution system are the pipes themselves. Be-
tween source, storage and distribution points,
water for domestic use should flow only in
pipes to protect its quality. Other system com-
ponents are break-pressure tanks, valves, serv-
ice reservoirs and the watering points.
103. Standpipes and push taps are recom-
mended to be used as outlets where possible.
Multiple tap standpipes are normally con-
structed, each installation having usually
between 5 and 10 individual taps. Taps are
very vulnerable and spares must be available.
Where water supplies are limited and the site
is crowded, valve distribution points which
can be chained shut may be the only effective
solution.
104. The larger the number of people using
a single source or outlet of water, the greater
the risk of pollution and damage. Whatever
the final distribution system, this must be care-
fully controlled and supervized – guards are
often needed.
105. The design, construction, operation and
maintenance of the water supply system
should be carried out bearing in mind the
need to minimize water wastage (from taps,
pipes etc.) This is particularly important in sys-
tems based on low yield water sources or on
those requiring treatment or pumping.
106. The community itself will also generate
a certain amount of waste water. This must
not be allowed to become a danger to public
health, and it may instead be usefully recycled,
for example to water livestock, irrigate veg-
etable gardens or in pour-flush latrines.
Key References
Assisting in Emergencies, A resource Handbook
for UNICEF Field Staff, Emergency Operations
Unit, UNICEF, New York, 1986.
Community Water Supply. The Handpump Option,
A Joint Contribution by the United Nations Devel-
opment Programme and the World Bank to the
International Drinking Water Supply and Sanita-
tion Decade, World Bank, Washington, 1987.
Emergency Water Sources, Guidelines for Selec-
tion and Treatment, S. House & B. Reed, Water
Engineering Development Centre (WEDC), Lough-
borough University, 1997.
Engineering in Emergencies, A practical Guide for
Relief Workers, Davis J., Lambert R., IT Publications
on behalf of RedR. Intermediate Technology Pub-
lications Ltd., London, 1995.
Environmental Health Engineering in the Tropics:
An Introductory Text, Cairncross S., Feachem R..
John Wiley & Sons, Chichester, 1983.
Guidelines for Drinking Water Quality, 3 Volumes,
Second Edition, WHO, Geneva, 1993.
Handbook of Gravity-Flow Water Systems for
Small Communities, Jordan Jr. T.D, UNICEF/Nepal,
Kathmandu, 1980.
Hand Dug Wells and their Construction, Watt S.,
Wood W., Intermediate Technology Publications
Ltd., London, 1977.
Handpumps, Technical Paper Series 10, Interna-
tional Reference Centre for Community Water
Supply and Sanitation, The Hague, 1977.
Principles of Water Quality Control, Tebbutt,
T.H. Y., Pergamon Press, Oxford,1973.
Slow Sand Filtration for Community Water Supply
in Developing Countries, A Design and Construc-
tion Manual, Technical Paper Series 11, Interna-
tional Reference Centre for Community Water
Supply and Sanitation, The Hague, 1982.
Small Community Water Supplies, Technology of
Small Water Supply Systems in Developing Coun-
tries, International Reference Centre for Commu-
nity Water Supply and Sanitation, John Wiley &
Sons., Chichester, 1983.
Small Water Supplies, Cairncross S., Feachem R.,
Ross Bulletin No. 10 The Ross Institute of Tropical
Hygiene, London, 1978.
Water Manual for Refugee Situations, Programme
and Technical Support Section, UNHCR, Geneva,
1992.
Water and War, Report on the Symposium on
Water in Armed Conflicts (Montreux, Nov. 1994),
International Committee Of The Red Cross,
Geneva, 1995.
There should be at least one tap per 80-100
refugees and no more than 200 refugees
per handpump or per well with one rope
and bucket.
Equity in the distribution of scarce water is
an extremely important consideration.
Water16
227

17
Environmental Sanitation
228

Overview
Basic Principles and Standards 6-20 231-232
Human Resources and Organisation 232-233
Human Excretia Disposal 21-52 233-238
Introduction
Immediate Action
Selection of a System: Basic Considerations
Trench Latrines
Pit Latrines
Bore-Hole Latrines
Ventilated Improved Double Pit (VIDP) Latrine
Pour-Flush (PF) Latrine
Stabilization Ponds
Solid Wastes 53-59 238-239
Garbage Management
Dust
Wastewater 60-67 239-241
Treatment
Pest and Vector Control 68-77 240-241
Physical Control
Chemical Control
General Hygiene 78-81 241
Disposal Of The Dead 82-86 241-242
Key References 242
Annexes
Annex 1: Environmental Sanitation Survey Form 243-245
Annex 2: Environmental Sanitation: Resource Inventory Form 248
Figures and Tables
Figure 1: Considerations in Excretia Disposal 235
Figure 2: Pit Latrines 237
Figure 3: Bore Hole Latrines 237
Figure 4: VIDP Pit Latrine 238
Figure 5: Pour-flush Latrine 238
Table 1: Number and Types of Sanitary Facilities Required 232
Table 2: Vectors which May Pose Significant Health Risks 240
EnvironmentalSanitation17
229

Situation
Overcrowding, a harsh environment and disruption of normal sanitation habits can threaten
the lives and well-being of the refugees in emergencies. Proper sanitation is a key aspect of the
hygiene cycle involving water and health and is fundamental to a multi-sectoral approach in
emergency response.
Objective
To prevent the spread of disease and promote a safe environment for the refugees.
q The co-operation of the refugees is essential for success. Programmes must be developed with
them, and, to the extent possible, run by them. The measures taken must be culturally accept-
able to the refugees;
q Swift provision of a basic system for human waste disposal is better than delayed provision of
improved systems;
q Take full account of sanitation needs in site selection and layout;
q Make full use of locally available human, material and technological resources. This includes
using both skilled and unskilled refugee labour, using public health or sanitary engineering ex-
pertise available in the national institutions, and relying on the traditional practices of the
refugees and the local people;
q The materials and technology chosen should be as simple as possible;
q The sanitation programme must include provisions for continuous maintenance of the sanita-
tion facilities and services;
q The best guarantee that latrines will be used and kept clean is to allocate them on an individ-
ual or family basis. Refuse disposal should be arranged on a community basis;
q Wherever possible, restrict the use of chemicals (for the control of rats, flies and other pests
particularly) to specific places and for a limited period of time. Environmental measures should
be favoured instead.
Action
q Localize defecation and prevent contamination of the water supply;
q Collect baseline data on the site and draw a sketch of the area to locate potential zones for
sanitary facilities;
q Develop appropriate systems for disposal of excretia, garbage, and wastewater. Control vectors
of public health importance such as mosquitoes, flies, fleas, lice, bugs, rodents and other
vermin;
q Plan the amount of facilities and services to be provided. Optimum standards are: for excretia
disposal: one latrine per family; for refuse: one bin of 100 litre capacity for 10 families or
50 persons; one sanitarian for every 5,000 persons, and one sanitation assistant for every
500 persons;
q Establish sanitation teams for the construction and maintenance of infrastructure;
q Set up services for vector control and burial of the dead;
q Establish a monitoring and reporting system for all environmental health services in co-ordina-
tion with the general health surveillance system;
q Include environmental sanitation as an integral part of health education.
230

Introduction
1. Environmental sanitation includes: safe-
guarding water quality; disposal of human
excretia, waste water and garbage; insect and
rodent control; safe food-handling practices;
and site drainage. All these services, and the
provision of health care, are very much inter-
related and should be considered together. In
particular, this chapter should be read in con-
junction with the chapters on water, on health
and on site planning.
2. Disruption and crowding people together
who are accustomed to living in different and
less crowded conditions, makes adequate sani-
tation of critical importance. Basic services are
often lacking and habits may have to change.
In these conditions, indiscriminate disposal of
human and other waste poses a serious threat
to health.
3. Due to unfavourable environmental fac-
tors or unfavourable socio-cultural habits the
implementation of sanitation programmes in
refugee camps can be difficult. Additional
constraints include:
i. Sites that are easily flooded, barren and/or
inaccessible;
ii. Lack of space;
iii. Limited availability of local materials due
to either natural factors or considerations
related to environmental protection;
iv. Limited time for the community to get or-
ganized if only in a rudimentary way; and,
v. Lack of qualified personnel.
4. The key to reducing health hazards is to
have acceptable and practical waste disposal
systems. These must be developed in co-oper-
ation with the refugees and be culturally ap-
propriate, even if circumstances necessitate a
departure from traditional practices. Special
public health education may be required.
5. The refugees must also run the services
to the extent possible. Monitoring will be es-
sential: the effectiveness of the services will
depend to a significant degree on regular and
thorough maintenance and inspection.
Basic Principles And Standards
x Take full account of sanitation needs in site
selection and layout;
x Analyse sanitation and environmental hy-
giene issues as part of the initial needs and
resources assessment;
x Seek professional advice from those with
local knowledge;
x Consult and involve the refugees in the de-
sign and location of sanitary facilities, and
particularly their maintenance;
x Educate the refugees as part of the public
health education programme and devote
special attention to sanitation matters at
school for refugee children.
6. As stressed in the chapter on site plan-
ning, environmental sanitation will be a very
important consideration in site layout, and the
organization and operation of the sanitation
services must be integrated with other com-
munity services.
7. Developing adequate sanitation in a
refugee emergency is difficult; but correcting
mistakes is even more difficult. Expert advice
should be sought from a public health engi-
neer who is familiar with the habits of the
refugees and nationals of the country of asy-
lum, and if possible has experience of refugee
emergencies. Assistance should first be sought
locally from sources such as government de-
partments, the UN system, NGOs, universities,
consultants or contractors. If these cannot meet
the need, Headquarters' assistance should be
requested.
8. Good sanitation depends to a great ex-
tent on the attitudes of the community and
the people who run the system. The systems
and services developed should be able to ope-
rate effectively with a minimum of outside
involvement. Refugees themselves must be
trained to run the environmental sanitation
programmes.
9. The public health education programme
must place proper emphasis on the impor-
tance of sound environmental sanitation prac-
tices. The link between excretia contamination
and disease must be clearly understood by all.
Children are both the main sufferers from
excretia-related diseases and also the main ex-
creters of many of the pathogens that cause
diarrhoea. Teaching environmental sanitation
in schools is therefore essential.
10. Measures to contain human excretia
and to dispose of refuse should be taken
immediately. Since it is almost impossible to
Whatever the success of the sanitation
system with adults, children will present a
special challenge.
231

estimate how long refugees will stay in a
given site, more durable facilities should also
be established simultaneously. For example,
once a defecation field has been established,
latrine construction should begin at once; the
greater the time lag between those two
actions, the more difficult to shift people from
their previous habit (defecation in the open)
to subsequent building and use of latrines.
Even in hot, dry climates, human excretia dis-
posed of on the ground can favour the trans-
mission of diseases.
11. Communal facilities, especially latrines
are difficult to maintain in a permanent state
of cleanliness. However, refuse management
(especially transportation and final disposal)
is better to organize on a communal basis.
Domestic wastewater drainage requires a com-
bination of both individual and communal
systems. Drains collecting wastewater from
each household have to be connected to main
ones which will channel those waters away
from the living quarters.
12. General norms and standards related to
specific activities (excretia disposal, solid waste,
vector control, etc.) should be seen as indica-
tive only and be adapted in each case to the
prevailing social, cultural and physical condi-
tions. Table 1 above gives standards which can
help to work out a preliminary quantitative
estimate of the most urgent needs.
13. Surveys of the status of environmental
sanitation programmes should be carried out
regularly and corrective action taken (see
Annex 1, Environmental Sanitation Survey
Form).
Human Resources And Organization
x Appoint a focal point;
x One sanitarian for every 5,000 persons and
one sanitation assistant per 500 persons
should be recruited from among the refu-
gees or from other sources;
x Community participation is the key to suc-
cessful sanitation projects.
14. A focal point for sanitation must be
appointed at the very start of the emergency,
and responsibilities of various partners clearly
defined. There are not many agencies special-
izing in environmental sanitation.
15. The first step in appointing the focal
point is to investigate the availability of local
expertise (a civil engineer specialized in sani-
tary engineering as an ideal example). Re-
course to outside assistance has to be contem-
plated if local expertise is not available.
16. At camp level, sanitation teams or
brigades, provided with basic hand-tools,
should be set up to carry out urgent tasks (dig-
ging trenches or pits for excretia and waste dis-
posal). A health education programme should
be launched simultaneously. Each team should
be headed by staff who have good knowl-
edge of sanitation (including medical and en-
gineering aspects).
17. It is always more efficient to have only
one agency responsible for both sensitizing
people to environmental sanitation and super-
vising related activities. Education for environ-
mental sanitation should focus on the “how
and why” of hygienic containment of human
excretia, and simple methods for waste dis-
posal and hygiene at household level (water
storage in the home, habitat and personal hy-
giene, etc.) Women, teachers, leaders, and
school children should be the first target of
such a programme.
18. Community participation is a key to the
success of sanitation projects. Health education
and sensitization are a prerequisite to that par-
ticipation. It should nevertheless be recognized
that it takes time to convince both the commu-
One sanitarian for every 5,000 persons and
one sanitation assistant per 500 persons
should be recruited.
232
EXCRETIA DISPOSAL 1 latrine / family 1 cubicle / 20 persons 1 cubicle / 100 persons
or defecation field
FIRST OPTION SECOND OPTION THIRD OPTION
REFUSE/GARBAGE 1 bin, 100 litres / 1 wheelbarrow / 1 pit (2 m x 5 m and
10 families or 50 persons 500 persons and 1 tipper / 2 m deep) / 500 persons
5,000 persons and 1 incinerator and
1 deep pit for each clinic
STORAGE TRANSPORT FINAL DISPOSAL
Table 1: – Number and Types of Sanitary Facilities Required

nity and individuals about benefits they can ex-
pect from a sanitary environment. Concrete ex-
amples such as pilot latrines near clinics, market
or other places are therefore very important to
support environmental health programmes.
19. Refugees should be provided with tools
and basic materials (and incentives in some
cases) to encourage them to contribute to the
improvement of their own living conditions.
They should be gradually integrated into the
sanitation teams, the ultimate goal being that
the refugees themselves should do most of
the maintenance tasks.
20. Annex 2, Resource Inventory Form, gives
a checklist of the human and material re-
sources needed for environmental sanitation.
Human Excretia Disposal
x Take immediate action to localize excretia
disposal and prevent contamination of the
water supply;
x Carefully consider cultural and physical fac-
tors and ensure that appropriate anal clean-
ing materials and hand-washing facilities
are available;
x Communal trench latrines may be needed
initially, but in most circumstances pit latri-
nes are much better;
x Ensure that latrines can be used at night
and are safe for women and children.
Introduction
21. The priority is to create an efficient bar-
rier against faecal contamination. This can be
assured through a sufficient number of sani-
tary facilities, ensuring that these facilities are
properly used and kept clean, and do not be-
come the source of problems such as bad
smells and flies, and do not collapse when it
rains.
22. The best guarantee of proper mainte-
nance is the individual family allocation of
latrines. Breakdown of latrines will lead to
contamination of the environment and a high
risk of infection and disease. There must be
regular inspection and maintenance.
23. Individual families will be responsible for
their own units, but where communal latrines
are unavoidable, special arrangements to
keep them clean will be essential. Particular
attention must be given to the maintenance
and cleanliness of the latrines serving commu-
nity facilities such as health centres. Refugee
workers with proper supervision will be re-
quired. It may be necessary to pay or other-
wise compensate those who are responsible
for keeping communal latrines clean and
operational.
24. Disinfectants would prevent the biologi-
cal degradation of excretia. However the regu-
lar addition of soil, ashes or oil, if available, to
trench or pit latrines may help control insect
breeding and reduce odours.
25. Two main factors will affect the choice of
an excretia disposal system: the traditional
sanitation practices of the refugees and the
physical characteristics of the area, including
the geology, the availability of water, rainfall
and drainage. Failure to take proper account
of these can easily result in the system itself
rapidly becoming a health hazard.
26. The essential starting point is to find out
the traditional sanitation practices of the
refugees and how these can be modified to
reduce health risks in a refugee emergency.
The following information will be required:
❏ Previous sanitation system and practices;
❏ Method of anal cleaning;
❏ Preferred position (sitting or squatting);
❏ Need for privacy;
❏ Segregation of sexes and other groups or
individuals with whom it is culturally unac-
ceptable to share a latrine;
❏ Cultural practices for children;
❏ Cultural taboos (for example, against con-
tact with anything that may have touched
excretia of others);
❏ Social factors, including likelihood of com-
munity action to ensure proper use of pro-
posed system;
❏ Need for special orientation (direction) of
latrines in some cultures;
❏ Systems used locally in neighbourhood of
site.
Disinfectants should not be poured into the
pits or tanks of latrines.
Even when in working order, latrines will
not be used unless they are clean. Latrines
must be cleaned daily.
The most common cause of breakdown is
inadequate maintenance, even for properly
designed and installed systems.
233

27. Arrangements must be made to assure
the availability of appropriate anal cleaning
materials at or near all latrines. This is essential
for hygiene.
Pay attention to security for women: for com-
munal units some form of lighting should be
provided and it may be necessary to provide
guards.
Immediate Action
28. Initially the refugees are likely to defe-
cate indiscriminately, contaminating their en-
vironment and often the water supply. In
consultation with the community leaders, the
best first step is to demarcate defecation fields
to localize and contain excretia.
29. Designate an area or areas (about 50 m x
50 m each) away from the dwellings and
down wind, but sufficiently close to be used.
Separate areas for men and women are usu-
ally desirable. Within the defecation field,
strips of land – roughly 1.5 m wide, 20 m long,
on each side of a central access path – will be
used, one after the other, beginning with
strips farthest from the entrance.
30. Based on a recommended surface area
of 0.25 m2
per person per day, exclusive of
access paths, defecation fields of the size
above would be sufficient for about 250 peo-
ple during a month, or 500 people during two
weeks. Operating defecation fields beyond one
month is not advisable.
31. Fence the area(s) and provide privacy by
means of partitions and shallow trenches (in
the strips) and spades, if possible. Covering
excretia with ash, lime or just soil lessens
health risks. Locate such areas where the sur-
face water run-off will not cause contamina-
tion. Protect the area with cut-off ditches.
32. A publicity campaign will be required to
encourage refugees to use these areas and
not defecate indiscriminately near dwellings
or the water supply. At least one attendant
should be assigned to each defecation field.
To the extent possible, hand-washing facilities
should also be installed nearby.
Selection of a System: Basic Considerations
33. The selection of an excretia disposal sys-
tem suitable for a particular situation requires
consideration of a number of factors. In an
emergency, however, time is the critical factor.
Pollution of the environment by excretia, with
all its attendant risks, cannot be stopped with-
out immediate sanitation measures. Thus the
range of choice is always much more limited
at the very outset of an emergency.
34. Temporary systems, to meet the most
immediate needs, will have to be improved or
replaced by others as soon as possible, in order
to maintain adequate sanitation standards.
In emergency sanitation, act first and im-
prove later.
The latrines must be safe for children, and
must be able to be used at night.
234

235
Discuss problems with refugees,
Government officials, NGO’s, etc.
Assess availiable resources
Immediate action: localize excretia
away from dwellings and water supply
Hot,
dry climate?
Figure 1 – Considerations in Excretia Disposal
No
Rocky
soil?
No
Excretia must be contained:
cover it with soil if
possible, pending a better
solution
Bury excretia:
1. Deep trench – simplest
2. Appropriate family latrine – better
e.g. ventilated improved pit, borehole,
VIDP latrines
No
No
Yes
Identify and designate
areas for defecation
Yes
At least ensure raised
structure to separate
defecator from marshy
ground
Yes
Raised latrines
(VIP, VIDP)
High
water table,
flooded
or marshy
ground?
Must go direct into
watertight or raised
container, e.g.
VIDP unit
Yes
Choose most
appropriate wet system,
e.g. pour-flush toilets
or dry system
Is water
nevertheless
available and used
by refugees?

35. Figure 1 illustrates some considerations
to be taken into account in excretia disposal.
36. The design of sanitary facilities should be
governed by cultural factors (discussed above)
and by the following physical considerations:
i. Flies and smells: these can be reduced by:
installing vent pipes topped with anti-cor-
rosive screens; covering faeces regularly
with ash; treating latrines with biological
larvicides to control fly larvae; using fly
traps, etc.;
ii. Flooded pits or collapsed walls: these can
be avoided by ensuring proper construc-
tion including having a raised superstruc-
ture, well-built base and mound, pit lining,
and good drainage. Sometimes these steps
are not taken because of, for instance,
financial considerations. However, a large
number of latrines built quickly and
cheaply will not necessarily solve environ-
mental health problems;
iii. Life-span: to dig a pit for excretia is not a
very exciting exercise. Normally, the pit
should be designed to last two to three
years (the capacity of a dry pit should be at
least 0.07 cubic meters per person per
year). If its dimensions have not been prop-
erly calculated, people will have to dig a
new pit a short time later. Community
members would understandably be reluc-
tant to do this and the site would become
covered with pits, some containing un-sta-
bilised faecal matter hazardous to human
health. In addition, shortage of space limits
the number of latrines which can be built;
iv. Cleanliness and privacy: Communal instal-
lations are rarely kept clean and become
unusable within a very short period of time
and encourage transmission of diseases.
Therefore family latrines should be pre-
ferred whenever possible. Sanitary facilities
should preserve users’ privacy. Cubicles
should be partitioned off within each
block. At family and individual level, socio-
cultural considerations often make it com-
pulsory to build separated units for men
and women. Disregard for these simple cri-
teria might result in misuse and abandon-
ment of facilities;
v. Location: groundwater pollution must be
nil or at a minimum. Latrines should be at
least 30 m from any groundwater source
and the bottom of any latrine at least 1.5 m
above the water table. Latrines must be
close enough to users' shelters to encour-
age their use (not more than 50 m). They
must be far enough from shelters and
other buildings to prevent potential smells
and pests from bothering or harming the
population (at least 6 m from shelters if
possible).
37. There are a number of latrine options:
once cultural and physical factors have been
taken into account, the key factors to consider
are low cost, simplicity of construction and
ease of maintenance.
Trench Latrines
38. Trenches can be used for a few months.
If necessary, and where space is available, this
solution can continue for longer periods, with
new trenches being dug as old ones fill up.
39. A platform and structure will be needed,
providing a seat or squatting hole as appropri-
ate, with lid. When the trench is filled to
within 30 cm of the top, it must be covered
with soil and compacted. Trench sides must be
shored up if there is a danger of collapse.
Pit Latrines
40. The pit latrine is the most common ex-
cretia disposal system used around the world
Trench latrines should be dug 1.8 to 2.5 m
deep and 75-90 cm wide. Recommended
length per 100 persons is 3.5 m.
236
Figure 2a

of the ventilated improved version (VIP) (see
figure 2b), and by adding oil and using lids.
46. In a VIP latrine the vent pipe should be
at least 15 cm in diameter, about 2.5 m high,
painted black and placed on the sunny side of
the latrine for maximum odour and insect
control. Blackening the external surface of the
vent pipe only marginally increases the vent-
ing velocity, but this factor may be of greater
importance under "no wind" conditions. The
vent pipe must be fitted with an insect proof
gauze screen (so it works as a fly trap). The
hole should not be covered by a lid as this im-
pedes the air flow.
Bore-Hole Latrines
47. Bore-hole latrines (figure 3) are dug with
a hand auger or mechanical drill and require
a smaller slab than a pit. The bore-hole is
35-45 cm in diameter and any depth up to
7 meters. The advantage of the bore-hole la-
trine is that it can be constructed quickly as a
family unit if augers are available. The disad-
vantages are that the side walls are liable to
fouling and fly breeding, they are smellier than
vented systems and the risk of ground water
contamination is greater because of the depth.
Where pit latrines are used, the ventilated
improved version should be built whenever
possible.
237
Figure 3
Figure 2b
(see figure 2a). It has major advantages over a
trench latrine. It consists of four basic compo-
nents: a pit, a base, a squatting slab (or plate)
and a superstructure.
41. If used by only one family these latrines
are usually well maintained. Pit latrines can
also be used in clusters as communal facilities.
42. Pit latrines are most suitable in condi-
tions of low to medium population density –
up to about 300 persons/hectare – but have
been used satisfactorily in areas with twice
this density. Space is needed not only for the
construction of one pit latrine per family, but
also for new pits when the old ones are full.
This is an important consideration when pit
latrines are used as communal facilities.
43. When the pits are three-quarters full,
they must be filled with soil and the super-
structure and squatting plate moved to a new
pit. Applying layers of ashes as the pit fills will
speed up the decomposition of excretia and in
time the site can be used again.
44. The pit should be about one meter
across and over two meters deep. The rim of
the pit should be raised about 15 cm off the
ground and ditches should be dug around the
base to divert surface run off. The pit wall
should always be reinforced for one meter be-
low ground level to prevent collapse.
45. The basic variety has both odour and in-
sect problems, but these can be considerably
reduced by making the simple improvements

Ventilated Improved Double-Pit (VIDP)
Latrine
48. Raised (or built-up) pits can be used
where it is not possible to dig deep pits be-
cause the water table is high or excavation is
difficult (for example in rocky ground).
49. The VIDP latrine (figure 4) (also called al-
ternating-twin pit ventilated latrine) has two
shallow pits, both of which are ventilated by
separate vent pipes capped with fly screens. It
is a good option in crowded areas which may
become even more crowded, as it preserves
the space needed for replacement latrines.
50. Two pits give more flexibility. A pit fills
up in two to three years, and it should then
stand for at least one year. This gives enough
time for the night soil to dry out and decom-
pose, so that it can be removed more easily
and not pose a health hazard. While the full
pit is decomposing, the other pit is used. The
two pits must not be used at the same time.
Pour-Flush (PF) Latrine
51. Pour-flush latrines (figure 5) are simple in
design but need permeable soil for their soak-
away. A water seal is made by a U-pipe filled
with water below the squatting pan or seat. It
is flushed by hand with some 1-3 litres of wa-
ter into a pit or soak-away. This system is suit-
able where water is used for anal cleaning
and where refugees are used to flushing. It is
not suitable where paper, stones, corncobs or
other solid materials are used for anal clean-
ing. Pour-flush latrines will be used properly
only if water is readily available. A large con-
tainer with a 3 litre dipper should be made
available close by the latrines.
Stabilization Ponds
52. Where liquid effluent has to be disposed
of in impermeable soil, stabilization (oxida-
tion) ponds are a simple and cheap solution,
particularly in hot climates. Various systems
are described in the technical references. If
ponds are used they must be securely fenced
off.
Solid Wastes
x Improper garbage disposal increases the risk
of insect and rodent-borne diseases, and an
effective system must be established for the
storage, collection and disposal of garbage;
x Garbage disposal areas must be designated
and access to them restricted;
x Large amounts of dust can damage health.
Preventing destruction of vegetation is the
best preventative measure against dust.
53. The quantity of garbage generated by
refugees is often not considered substantial
and it therefore tends to be neglected. How-
ever, the daily amount of garbage as well as
its weight can be significant, in market places
in particular.
Uncontrolled accumulation of garbage is
unhealthy, and promotes an increase in ro-
dent and insect borne disease.
238
Figure 4
Figure 5

At the beginning of an emergency hygiene
and waste disposal is usually poor, so vermin
and other pests including rodents proliferate
very rapidly.
54. Food is occasionally distributed to refu-
gees in metal cans. How those are disposed of
should be given particular consideration not
only for aesthetic reasons but also because of
health hazards (injuries to children, potential
breeding sites for mosquitoes, etc.). In addition,
this kind of garbage is far from biodegradable.
55. Medical waste (used syringes and needles,
contaminated bandages, laboratory specimens,
etc.) generated by health centres, are a hazard.
Access to medical sanitary services should be
well controlled, and the waste should be
treated separately, without delay (see below).
There should be routines for the storage, col-
lection and disposal of garbage – this will be
particularly important in high-density sites.
Garbage Management
56. Storage: metal drums can be used as re-
fuse bins at individual dwelling level. A
200 litre drum cut in half is often used. Bins
should have lids if possible and drainage holes
in the bottom. A ratio of one container (100 l
capacity) per 10 families has proved to be ef-
fective. The containers should be placed
throughout the site in such a manner so that
no dwelling is more than about 15 meters
away from one. Using concrete structures as
refuse bins is neither economical nor practical:
they are difficult to empty properly so rodents
are encouraged and garbage is dispersed
around the area.
57. Collection and Transportation: garbage
should be collected from the containers regu-
larly, daily if possible. Camps near a city could
benefit from existing refuse-dump services.
Using tractors with trailers is expensive and
should be considered as a last option and only
for large and densely populated camps.
Wheelbarrows and/or carts (hand or animal
carried) are usually more appropriate.
58. Disposal and Treatment:
i. Sanitary land-filling (also known as con-
trolled tipping) remains the most advisable
method. Areas designated for burying
garbage should be well away from
dwellings, and fenced off;
ii. Incineration is justified on a small scale and
usually only for medical waste. After each
incineration, cover the waste with a layer
of soil;
iii. Composting is an attractive option but re-
quires technical knowledge, which may not
be available. In addition, garbage must be
sorted to produce good compost.
Dust
59. Large amounts of dust carried in the air
can be harmful to human health by irritating
eyes, respiratory system and skin, and by con-
taminating food. The best preventive measure
is to stop the destruction of vegetation around
the site. Dust can also be controlled by spray-
ing roads with water or oil, especially around
health facilities and feeding centres, and limit-
ing or even banning traffic.
Wastewater
x Sources of waste water must be controlled
as soon as possible and drainage provided.
60. This aspect of environmental sanitation
should always be considered from the begin-
ning. Drainage prevents water from stagnat-
ing around water distribution points, and
drains the rainfall as well as domestic waste-
water originating from various sources (toi-
lets, showers, kitchens, etc.). Other measures
to help control vectors include eliminating
ponds.
61. Drainage can very quickly become a
problem and corrective measure are difficult
once shelters and other infrastructure have
been built. For example, people often wash
next to water sources, causing problems which
could be avoided if special separate washing
areas are constructed with duckboards or
stones and proper drainage.
62. Some families manage to channel waste-
water away from their homes and use it to ir-
rigate vegetable gardens. Although this
should be encouraged it should not disrupt
the main drainage system.
63. Good drainage should be a priority at
the following locations:
i. Water points (standpipes, taps, hand-
pumps);
ii. Sanitary facilities such as showers, toilets
and washing areas. Waste water from these
places should either be used to irrigate veg-
The safe disposal of all medical waste re-
quires particular attention.
239

etable gardens and fruit trees or drained
into absorption trenches or soak-away pits;
iii. Shelters: household members usually man-
age to protect their shelters from runoff
waters by means of perimeter drains. It is
nevertheless important to ensure that such
water is collected and disposed of through
main drains.
Treatment
64. In some circumstances, waste water
should be treated, for example waste from
sewers collecting effluent from pour-flush toi-
lets. Some treatment package units are avail-
able on the market; but these are usually ex-
pensive, complex, and difficult to operate and
maintain.
65. However, there is a broad range of waste
water treatment technology. Sanitary engi-
neering professionals should be consulted to
select the most appropriate technology.
Pest and Vector Control
x Insects and rodents carry and spread
diseases and can spoil food supplies;
x Physical screens are the best immediate
measures;
x Preventive action to eliminate or limit
breeding areas and conditions favourable
to the vectors is the best long-term solution;
x Specialist supervision of all chemical meas-
ures and local knowledge of resistance is
necessary;
x Avoid chemical control where possible.
66. The environment in a refugee emer-
gency is typically favourable to the prolifera-
tion of disease-carrying insects and rodents
(“vectors”), which can also destroy or spoil
large quantities of food.
67. Flies tend to breed in areas where food
or human excretia are present, mosquitoes
where there is stagnant water, and rats where
there is food, garbage and cover. As a result of
overcrowding and inadequate personal hy-
giene, lice, fleas, mites, ticks and other arthro-
pods may also cause health problems. Table 2
gives an indication of common vectors and re-
lated diseases.
68. Reducing the numbers of flies, mosqui-
toes and rodents quickly in an emergency is
difficult and physical screens may be the best
immediate measure. Over the longer term,
the most effective method of controlling in-
sects and rodents is preventive: to improve
personal hygiene, sanitation, drainage, gar-
bage disposal and food storage and handling
practices and thus make the environment less
favourable for the vectors. Examples of practi-
cal measures are the removal of stagnant
waste water, regular garbage collection, use
of oil in latrines and provision of soap and suf-
ficient water for washing. The recommended
monthly supply of soap is 250 g soap per per-
son per month. The programme should pro-
vide for regular inspection and be integrated
with other public health measures.
69. The problems should be discussed with
the refugees and education given on the sig-
nificance of vector control. Where solutions
unfamiliar to the refugees are employed,
these must be carefully explained.
70. Whatever the nature of nuisances and
pests, one should avoid having systematic re-
course to chemical control by means of pesti-
cides (insecticide, rodenticide, molluscicide,
etc.). Such products are costly and toxic to
both human beings and the environment.
There is a risk of poisoning during transport,
storage, handling and of course spraying the
chemicals. Also, pests can develop resistance
to the chemicals.
240
Flies Eye infections (particularly among infants and children), diarrhoeal diseases
Mosquitoes Malaria, filariasis, dengue, yellow fever, encephalitis
Mites Scabies, scrub typhus
Lice Epidemic typhus, relapsing fever
Fleas Plague (from infected rats), endemic typhus
Ticks Relapsing fever, spotted fever
Rats Rat bite fever, leptospirosis, salmonellosis
VECTOR RISKS
Table 2 – Vectors Which May Pose Significant Health Risks

Physical Control
71. Measures described in this chapter to deal
with excretia and waste disposal will also help
control pests (flies and rodents particularly).
72. The elimination of stagnant water and
other breeding and resting sites for mosqui-
toes through drainage is important and the
drainage network must be maintained.
Chemical Control
73. Obtaining precise information on chemi-
cals which are used or authorized to be used
in the country (i.e. registered list of pesticides
if any) should be the first priority.
74. Advice from specialists, particularly med-
ical entomologists, should be sought to mini-
mize the risks and to maximize the impact on
target-species.
75. Staff assigned to such tasks must be
trained on technical aspects, informed about
health hazards linked with handling and spray-
ing of pesticides, and protected by means of
adequate clothing (mask, boots, gloves, etc.).
76. The use of rodenticides should always be
adopted in agreement with medical staff. Rats
are favoured carriers of vectors (such as fleas)
of bubonic plague and murine typhus. When
these diseases may be present it is more impor-
tant to take measures directly against the vec-
tors themselves – i.e. the fleas, rather than the
rats – because destroying the rats will simply
cause the fleas to leave the dead bodies of the
rats and become more of a threat to people.
77. The body louse is the only proven vector
of louse-borne epidemic typhus and relapsing
fever. If there is a serious increase in body
louse infestation, quick action is required by
properly trained personnel. This generally in-
volves dusting individuals' inner clothing and
bedding with an insecticide or the use of
clothing fumigants. There is widespread resist-
ance in lice to some insecticides and expert lo-
cal advice must be sought.
General Hygiene
x Sanitary engineering must be complemen-
ted with sufficient health education, sensiti-
zation and community participation.
78. Habitat hygiene, food hygiene and per-
sonal hygiene, while being integral parts of
environmental sanitation, are a matter of
health education and community sensitization
rather than of sanitary engineering. It is never-
theless worth underlining that the most effec-
Insecticide spraying carried out on a routine
basis must be avoided, and in any event
should be consistent with the rules and pro-
cedures in force in the host country.
241

tive manner to sustain “soft” activities such as
education in general and health education in
particular is to complement them with “hard”,
visible and concrete activities on the spot.
79. Community participation in sanitation
activities is a key to successful implementation,
however, to make participation work in prac-
tice, the community members must have the
necessary resources – human, institutional and
material – to enable them to take on their re-
sponsibilities.
80. Activities to improve living conditions
should take place at all levels – site, commu-
nity, family and individual – and not be re-
stricted to just one level. Elementary rules of
hygiene should be observed by everyone.
81. There are three essential steps to im-
prove living conditions:
❏ Avoid overcrowding and overpopulation,
which increase transmission (through direct
or indirect contact) of diseases brought
about by vectors such as fleas and lice;
❏ Reduce faecal/oral transmission risks by en-
suring systematic hand-washing before
cooking and eating;
❏ Encourage personal hygiene including
clean clothes by providing amenities such
as showers and laundering areas and
basins. This will also reduce contact with
water bodies that have been polluted by
excretia, reducing the risk of disease includ-
ing bilharziasis (schistosomiasis).
Disposal Of The Dead
x Suitable arrangements for disposal of the
dead are required from the start of an
emergency;
x Action should be co-ordinated with the na-
tional authorities;
x Burial is the simplest and best method
where acceptable and physically possible.
Arrangements should be made to allow tra-
ditional rituals;
x Before burial or cremation, bodies must be
identified and the identifications recorded.
82. Suitable arrangements for the disposal of
the dead are required from the start of a re-
fugee emergency. The mortality rate may well
be higher than under "normal" conditions.
The authorities should be contacted from the
outset to ensure compliance with national pro-
cedures, and for assistance as necessary.
83. Dead bodies present a negligible health
risk unless the cause of death was typhus or
plague (when they may be infested with in-
fected lice or fleas) or cholera. Funerals for
persons dying from cholera should be held
quickly, near the place of death. Efforts should
always be made to restrict funeral gatherings
of persons dying from any of these three dis-
eases, and to restrict feasting and ritual wash-
ing of the dead, by intensive health education
or by legislation, as appropriate.
84. Health considerations provide no justifi-
cation for cremation, for which sufficient fuel
may often not be available. Whenever possi-
ble, the customary method of disposal should
be used, and the traditional practices and rit-
ual should be allowed. Material needs, for ex-
ample for shrouds, should be met. The neces-
sary space for burial will need to be taken into
account at the site planning stage, particularly
in crowded conditions.
85. Before burial or cremation, bodies must
be identified and the identification recorded,
and, if possible, cause of death recorded. This
is particularly important for the control, regis-
tration and tracing of disease. If the where-
abouts of relatives are known, the most imme-
diate relation should be notified; and steps
must be taken to assure the care of minors
who, as the result of a death, are left without
an adult to look after them.
86. When handling corpses workers should
protect themselves with gloves, face masks,
boots and overalls. The workers should wash
thoroughly with soap and water afterwards.
Although the HIV virus cannot survive for long
in a dead body, care should be taken with
bodily fluids.
Key References
A Guide to the Development of On-Site Sanita-
tion, WHO, Geneva, 1992.
Chemical Methods for the Control of Arthropod
Vectors and Pests of Public Health Importance,
WHO, Geneva, 5th
edition 1997.
Manuel d’Utilisation des Désinfectants, UNHCR,
Geneva, 1994.
Sanitation and Disease: Health Aspects of Excretia
and Wastewater Management, Feachem & al,
Wiley & Sons, 1983.
Vector and Pest Control in Refugee Situations
(also in French), PTSS, UNHCR, Geneva, 1997.
Vector Control: Methods for Use by Individuals
and Communities, WHO, Geneva, 1997.
242

243
Annex 1: – Environmental Sanitation Survey Form
Country: Date: ....../....../......
Camp/Settlement: Camp Population:
Prepared by:
A. Excretia Disposal
Ratio of latrine seats to people: 1/......
Total V.I.P.* Rudimentary P.F.** Other
Private Latrines
Public Latrines
Comments:
I. Living Areas
B. Refuse Disposal
Capacity Number Max Distance
(Litres) from dwelling (m)
– Individual pits: ss ss ss
– Garbage Bins ss ss ss
Wheel-barrow Truck Other
– Transportation: ss ss ss
Landfill Incineration Other
– Final Disposal ss ss ss
Dimensions Number
Communal refuse pits long___x Wide___x Deep___x ss
Comments:
* V.I.P. = Ventilated Improved Pit
**P.F. = Pour-Flush

244
Annex 1
C. Existing Facilities
Schools
*Latrine Type P.F. V.I.P. Rudimentary Other
ss ss ss ss
1 seat /_____________ boys
1 seat /_____________ girls
1 urinal /____________ boys
*Refuse collection Yes No
ss ss
Hospitals
*Latrine Type P.F. V.I.P. Rudimentary Other
ss ss ss ss
*Refuse collection Buried Burnt
ss ss
Markets
*Excretia Disposal Good Poor None
ss ss ss
*Refuse collection Good Poor None
ss ss ss
Comments:
D. Drainage
– at water posts Good Poor None
ss ss ss
– around latrines Good Poor None
ss ss ss
– camp drainage network Good Poor None
ss ss ss
Comments:
II. Public Places

245
E. General Characteristics
– topography Flat Moderate Steep
ss ss ss
– soil Rocky Clay Sandy
ss ss ss
– water table distance from Rainy Season Dry Season
ground surface m m
F. Community water supply
– sanitation at source Good Poor None
ss ss ss
– sanitation at distribution point Good Poor None
ss ss ss
– individual water containers Capacity litres
– storage at home Capacity Clean Covered
_____ litres Y – N Y – N
– chemical used for water disinfection Chlorine Other None
ss ss ss
– points of application of above chemicals Source Storage Home
Tank Container
ss ss ss

246
A. Implementation Name(s)
Governmental authorities
International organisations
Private sector
NGO’s
B. Human Resources Number of Workers
Is there a spraying team? Y N
Is there a drainage team? Y N
Is there a sanitation team? Y N
Is there an organised workshop? Y N
Number of sanitarians:
Number of health workers:
(assigned to sanitation tasks)
C. Tools Description Specification Quantity
Axe
Crowbar
Iron bar cutter
Pickaxe
Shovel
Spade
Tape metre
Other (please specify)
D. Equipment Description Specification Quantity
Cement mixer
Mortar bucket
Mould (latrine slab)
Mould (brick)
Wheelbarrow
Sprayer
Spraying equipment
– overall clothing
– masks
– gloves
– boots
Other (please specify)
E. Chemicals Item Unit Quantity (stock in Hand) Comments
Vector control
–
–
Water Treatment
–
Annex 2: – Environmental Sanitation – Resource Inventory Form
Country: Prepared by:
Camp: Population:
Date: ....../....../......

Overview
Organization of the Supply Chain 4- 9 251-253
Assessment
Planning
Local and Other Resources
Setting up the Supply Chain
Supplies 10-32 253-255
Introduction
Local and International Procurement
Emergency Stockpiles
Specifications and Catalogues
Considerations in Product Choice
Transport 35-51 255-257
International Transport
National Transport
Transport Capacities
Transporting People by Road
Reception of Goods 52-62 257-259
Consignment
Clearance Procedures
Inspection and Damage
Insurance
Storage 63-74 259-260
Basic Requirements
Considerations in Warehouse Selection
Warehouse Construction
Stock Management 75-82 260-261
Key References 261
Figures
Figure 1: Main Components of a Logistics System 252
Annexes
Annex 1: Standard Specifications For Certain Common Relief Items 262-263
Annex 2: Planning Vehicle Needs 264-266
Annex 3: Stock Management Systems 267-268
Annex 4: Stock Management Forms 259-271
SuppliesandTransport18
249

Situation
Refugee emergencies are often in locations removed from the main sources of supply and
communications arteries. Exceptional efforts may be needed to ensure the provision of supplies
and services. However without these, the whole operation will fail.
Objective
The timely delivery of the materials needed for the refugee operation.
q There should be a single, unified “supply chain” with standardized procedures and coordi-
nated with external agencies such as WFP. The term “supply chain” includes the sourcing,
procurement, transport, import, management, storage and distribution of goods and services
required to meet operational needs;
q Duplication of supply chain support within the UNHCR operation must be avoided;
q A single coordinating body of all the relevant UN agencies may be required to implement
certain aspects of the supply chain such as transportation and storage (e.g. a “UN Joint Logis-
tics Cell”);
q Request urgently needed supplies from the UNHCR Central Emergency Stockpile if they are
not available locally;
q Ensure there is good communication between offices involved in the supply chain and timely
information exchange regarding logistical capacities and constraints;
q Transport and storage arrangements must have spare capacity: things often do not go accord-
ing to plan, needs, and the demand for supplies, may increase;
q Seek technical assistance when necessary.
Action
q Make a comprehensive plan for all supply chain functions. Integrate supply chain arrange-
ments in the overall planning from the start, coordinate with all sectors, and take into account
any special requirements;
q Identify weak elements in the supply chain and inform operational managers of actions ren-
dered critical due to lead time (the delay between the request for material and its arrival);
q Seek out knowledge on local conditions and assess implementing possibilities with local sup-
pliers, or other agencies.
250

Introduction
1. The vital role of the supply chain must
not be overlooked in the initial planning, and
the input of a logistics specialist is required on
any assessment mission. The more remote the
location of the refugees, the more difficult
will be the logistical problems, yet these
are the situations where logistic support or
the lack of it becomes the key to success or
failure.
2. The supply chain must provide for inter-
national purchase, transport, swift unloading
and duty-free clearance on arrival, local pur-
chase, transit storage, onward transportation,
and final distribution, with proper stock con-
trol at every stage. Figure 1 shows the likely
major components of the system in diagram-
matic form.
3. Logistical support can be disrupted by
unpredictable events and many factors out-
side UNHCR’s control including customs delays,
breakdowns, looting, and the vagaries of
nature. Furthermore, the numbers requiring
assistance often increase during the emer-
gency phase of an operation.
Organization of the Supply Chain
x A single coordinated operation is essential
and duplication of supply chain services
must be avoided;
x This requires a clear understanding of over-
all needs and the responsibilities for meet-
ing them;
x Three key qualities of a good supply chain
are: rapidity, flexibility and security.
Assessment
4. A clear understanding of the overall
needs by all concerned is essential. Needs as-
sessment and planning should be carried out
together with government, WFP and NGO
partners.
5. An easily understood and comprehensive
list of requirements is essential as the starting
point for meeting the basic material needs.
Without it, great confusion can result. With
such a starting point, the balance of needs,
requirements and distribution can be conti-
nuously monitored, and the effect of these re-
lief goods or services will be immediately
apparent.
Planning
6. Three key qualities of a good supply
chain are: rapidity, flexibility and security.
These three qualities depend on good coordi-
nation and communications as well as good
planning. When planning for and developing
the supply chain, ensure:
i. Rapidity: Response time is critically impor-
tant in emergencies, and advance planning
is essential to optimize resources, and not
waste time correcting avoidable mistakes
or inefficiencies. Planning must take into
account lead times;
ii. Flexibility: Logistics is dictated by the cir-
cumstances of the operation and terrain,
and must be able to quickly adapt to rapid
changes in circumstances. Plan for the worst
case scenario, and build in the required
flexibility and adaptability;
iii. Security: The security of personnel and re-
lief goods must be a priority in the logistics
plan. Security risks vary from theft and
looting to war;
iv. Coordination: Coordinate planning and im-
plementation with other agencies, in par-
ticular WFP who often have good local
transport and logistical capacity. WFP is
normally responsible for food supplies up
to the agreed Extended Delivery Point –
see chapter on food and nutrition.
A single coordinating body of all the relevant
agencies may be required to implement cer-
tain aspects of the supply chain such as trans-
portation and storage (a “UN Joint Logistics
Cell”) – guidance on setting this up is given
in MCDU’s UN Joint Logistics Cell: Standard
Operating Procedures. Ensure effective coordi-
nation by: advising team members and staff
from other organizations of minimal lead
times, respecting deadlines and delivering the
expected supplies at the time and place
agreed and keeping to agreed loading and
transport schedules;
Avoid duplication of logistical services by
different organizations and ensure a single,
coordinated operation.
The supply chain must provide for spare ca-
pacity because available capacity may be-
come quickly overwhelmed.
The ability to deliver the right supplies to
the right place at the right time and in the
right quantities is a prerequisite for an ef-
fective emergency operation.
251

v. Comprehensive planning: Have an overview
of the whole operation when planning for
and managing services, materials, staff and
time;
vi. Spare capacity: The logistics plan must pro-
vide spare capacity, taking into account
factors which would cause delays (such as
vehicle breakdowns);
vii. Cost-effectiveness: Ensure proper mainte-
nance of warehouses, efficient stock con-
trol, and well negotiated contracts (e.g.
for transport, warehouses, customs clear-
ance, and maintenance). Ensure purchases
are made from competitive sources in
accordance with UNHCR regulations – al-
though initial purchases may be made
with speed as a foremost concern, plan fol-
low on supplies in good time to be able to
purchase from competitive sources;
viii.Good communication: A regular exchange
of information between the offices in-
volved in the supply chain is essential.
Headquarters should give the Field as much
notice as possible of procurement and ship-
ment of goods or services, estimated times
of arrival (ETA), changes in delivery sched-
ules, and of contributions in kind. The field
should advise Headquarters of any changes
to importation laws, acknowledge receipt
and distribution of consignments, and ad-
vise Headquarters of contributions in kind.
ix. Clear responsibility:
The major decisions about supply chain is-
sues should be taken by the same person
with the appropriate responsibility and
authority;
Local and Other Resources
7. The supply chain should use local re-
sources and knowledge to the extent possible.
Where there is a good existing warehousing
and distribution system, outside assistance
may not be necessary. Where outside assis-
tance is required, sources include:
Whatever the arrangements in the field, the
line of responsibility and reporting to UNHCR
by the operational partners must be clear.
There must be good communications facili-
ties at dispatch and arrival points as well as
mobile communications sets on surface
transport.
252
Figure 1

253
i. Supply and Transport Section at Headquar-
ters (which handles procurement, logistics,
fleet management, and contracting);
ii. Government disaster agencies or emer-
gency corps, and Government Service Pack-
ages from donor governments (see chapter
on implementing arrangements);
iii. An NGO or commercial firm with appropri-
ate experience.
Setting up the Supply Chain
8. The circumstances of each emergency
will determine what type of supply chain sup-
port is required – whether it is directly imple-
mented by UNHCR, through an operational
partner or as a commercial contract.
9. Steps to establish the supply chain in-
clude the following:
i. Make arrangements for the duty-free im-
port/export of relief goods, and duty free
and tax free purchase of relief goods with
the appropriate governmental authorities.
To avoid delays, this must be done before
the goods are due to arrive;
ii. Investigate the possibility of using local
suppliers;
iii. Select warehouses appropriate for their
purpose (for storing food or non-food
items; for transhipment, storage or distri-
bution). Ensure that access roads and doors
allow easy loading and offloading;
iv. Select appropriate transport for goods
and/or passengers: determine the type and
the number of light and heavy vehicles,
vessels, aircraft and trains needed. Calcu-
late fuel and maintenance requirements
(tyres, lubricants, parts and mechanics);
v. Use temporary assistance during peak de-
mand for staff;
vi. Provide the necessary staff support equip-
ment such as office equipment and sup-
plies, light and water, vehicles, freight han-
dling items, power, communications, and
accommodation;
vii. Put in place a documentation and filing
system, and use standard forms to report
on the status of relief goods. Advise and
train personnel on procedures.
Supplies
x Assess what is readily available on the local
market: if locally available items are appro-
priate, make at least initial purchases locally;
x The basis for UNHCR procurement is com-
petitive tendering;
x Standard specifications have been devel-
oped for common items;
x Certain emergency relief items are stock-
piled centrally by UNHCR and can be ac-
cessed quickly in an emergency.
Introduction
10. The basis for all UNHCR procurement is
competitive tendering. This process is made
easier and more efficient by standard specifi-
cations.
11. Headquarters’ Supply and Transport Sec-
tion gives advice and provides support on
all procurement and logistics matters and is
responsible for international procurement.
Guidance on local purchase can also be sought
from other UN organizations. Tendering pro-
cedures are described in Annex 2 to chapter 8
on implementing arrangements.
12. When drawing up tender documents
and purchase orders it is essential that all
specifications, quantity, required delivery,
packaging and payment terms be clearly
stated. Care must be taken to ensure that
contract terms protect the rights and immuni-
ties of UNHCR. Requests for tenders should in
any event include UNHCR’s standard condi-
tions of sale. Advance payments and cash
transfers to suppliers must be authorized by
Headquarters.
13. If procurement is to be undertaken by
implementing partners on behalf of UNHCR,
the principles of competitive bidding must
be followed (see A Programme Management
Handbook for UNHCR’s Partners, section 4).
UNHCR staff should monitor local and interna-
tional procurement made by implementing
partners for the UNHCR-funded programmes.
14. Care should be taken to avoid purchas-
ing different qualities of the same items.
Local and International Procurement
15. If emergency relief items are available
locally, compare prices where possible with
the international market. Use catalogues or
send local prices to the Supply and Transport
Section in Headquarters who will advise on
the most appropriate course of action. Assess
what is readily available on the local market: if
locally available items are appropriate, make
at least initial purchases locally. At the same
time however, consider the cost-effectiveness

of continuing such local purchases beyond the
initial phase of the emergency, compared with
making those purchases internationally.
16. Local procurement can offer a number
of advantages over international purchases.
These could include:
i. lower prices;
ii. speed and flexibility of delivery;
iii. local acceptance;
iv. benefits and incentives to the local econ-
omy (particularly in areas affected by a
large refugee influx).
17. However, the disadvantages of local pur-
chase could include:
i. higher prices;
ii. inappropriate quality;
iii. sudden price increases (due to sudden
heavy demand) on the local market, ad-
versely affecting the local consumer popu-
lation and causing resentment;
iv. higher maintenance costs.
18. As a rule, no more than 15% would be
an acceptable premium for prices of locally
procured goods over the total delivered cost
of internationally procured goods1
.
Local Procurement
19. When the capacity of the local market is
limited, care must be taken to avoid price in-
creases caused by organizations bidding
against each other for the same supplies. Pro-
vided there is clear agreement on the needs,
coordination of purchases and even combined
orders among the organizations concerned
should be possible.
International Procurement
20. UNHCR has entered into a number of
long term supply agreements (“frame agree-
ments”) for a range of products. The purpose
of these agreements is to ensure the availabil-
ity of goods of a standard quality at competi-
tive prices, and reduce total lead time. These
items include blankets, plastic sheeting, essen-
tial drugs, kitchen sets, semi-collapsible jerry
cans, and buckets. Support and office items
supplied under frame agreements include
light vehicles, vehicle tires and tubes, genera-
tors, ballistic armour, computer and telecom-
munications equipment, and some office
equipment and supplies.
21. The UNHCR Catalogue of Most Fre-
quently Purchased Items gives summary speci-
fications, reference number, price (US$), coun-
try of origin, and, where relevant, production
capacity, production lead times and estimated
shipping times. It also includes a list of current
frame agreements.
22. When requesting Headquarters to make
a purchase, be sure to use both the reference
number for a product, and the name and date
of publication of the catalogue. If specifica-
tions are not available for the product wanted,
inform the Supply and Transport Section of
the purpose of the product and the context in
which it will be used.
23. Bear in mind lead times for international
purchase can be lengthy.
Emergency Stockpiles
24.
The UNHCR stockpile includes the operations
support items listed in the Catalogue of Emer-
gency Response Resources (see Appendix 1).
These items can be ordered through Head-
quarters.
25. Other UNHCR operations in the region
may hold stocks that could be made available
– these offices should be approached directly
about the most urgent requirements.
26. UNICEF, WHO, WFP, the IFRCS and NGOs
also maintain emergency stockpiles with sup-
plies which may be available to UNHCR.
Specifications and Catalogues
27. There are a number of catalogues of
products with detailed specifications. Using
standard specifications (and frame agree-
ments) is not intended to limit choice, but sim-
plifies supply, and ensures better integration
of equipment, spare parts and services.
Generic specifications also make the procure-
ment and tendering process fairer (e.g. com-
paring prices). Annex 1 gives detailed specifi-
cations of certain common relief items.
28. Catalogues of specifications include:
i. UNHCR Catalogue of Most Frequently Pur-
chased Items. This is published annually by
UNHCR’s Supply and Transport Section, and
distributed to all field offices. It gives brief
specifications, price, and lead times.
Certain common relief items are stockpiled
centrally by UNHCR, or by suppliers on be-
half of UNHCR, and can be accessed quickly
in an emergency.
254
1
IOM116/94 FOM120/94, UNHCR 14.12.94.

ii. IAPSO Emergency Relief Items. This is a
two volume catalogue published by the
Inter Agency Procurement Services Office
(IAPSO) of the United Nations. A large
number of standard specifications adopted
by UN are available in this catalogue, and
there are additional IAPSO catalogues on
other items (see key references).
iii. UNICEF Supply Catalogue. UNICEF also pro-
duces a large illustrated catalogue.
Considerations in Product Choice
Environment
29. UNHCR has a policy, also applicable in
emergency situations, to ensure awareness
and supply of environmentally friendlier prod-
ucts. Impact on the environment is considered
an integral part of product quality. Where two
or more suppliers are offering items which are
substantially the same in terms of specifica-
tions, price, quality, and delivery time, the
policy is to select a product whose manufac-
ture, use and disposal is less harmful to the
environment. For further details see Environ-
mentally Friendlier Procurement Guidelines,
UNHCR, 1997.
Shelter
30. For shelter, local materials and methods
of construction should be used where possible,
combined with tarpaulins or polythene sheet-
ing if necessary. Except for nomadic tribes,
tents are not a satisfactory type of long-term
shelter. They are, however, a valuable last
resort in emergencies. Remember that tents
may deteriorate rapidly if stored for any
length of time, particularly if humidity is high.
In-Kind Donations
31. In-kind donations should always be eval-
uated against actual needs and cultural appro-
priateness. All offers for in-kind donations
should be discussed with Donor Relations
Services and the Supply and Transport Section
in Headquarters before being accepted (see
chapter on implementing arrangements). Par-
ticular attention should be given to packaging
(which must meet transport requirements) and
expiry dates of products offered.
Clothing
32. Used clothing is often offered in emer-
gencies but is generally an unsatisfactory way
of meeting a need for clothing and should be
discouraged. It often arrives in poor shape,
dirty or badly sorted and will frequently be in-
appropriate for the customs of the refugees.
Consider the alternative of purchasing particu-
larly locally made clothes, and ensure that
what is provided is culturally acceptable.
Transport
x Vehicle fleets should be standardized (same
makes and models);
x Ensure there are sufficient drivers, fuel, lubri-
cants, spare parts, tyres, maintenance per-
sonnel and facilities;
x It may be necessary to improve access roads,
bridges, airport, or other infrastructure;
x A substantial margin of spare transport
capacity (10-20%) must be provided;
x With health and community services, assess
particular requirements for transporting
refugees in a repatriation operation, and/or
distribution for vulnerable groups.
International Transport
33. Arrangements must be made in advance
with the relevant authorities for priority clear-
ance and duties exemptions.
Air
34. In the emergency phase, supplies from
abroad may arrive by air. Provide Supply and
Transport Section at Headquarters with an up-
date on the handling capacity of the airport
(state of equipment, working hours, etc.) and
the list of documents required for import and
export of relief supplies.
Sea
35. As soon as details of the arrival of relief
supplies by sea are known, arrangements
should be made for clearance and priority allo-
cation of an alongside berth and/or handling
of cargo. In principle, relief supplies should be
loaded only on vessels with the capacity for
self-discharge. Whenever discharging along-
side, they should do so directly onto trucks if
possible. Arrangements for onward movement
of the supplies and any interim storage neces-
sary must also be made well in advance of the
estimated time of arrival of the ship.
National Transport
Transport Networks
36. In many countries, existing transport
services do not have a large spare capacity or
may not serve the area where the refugees
are located.
255

37. Where a suitable rail network exists, this
can be an effective way of moving supplies.
However, many railway systems are either con-
gested or short of rolling stock (the locomo-
tives and carriages used by railways) and long
delays may be encountered. In most cases, on-
ward movement by road to the final destina-
tion will be necessary.
38. Assess rail, road and inland waterway
capacity, journey times, reputable transport
contractors, freight rates, capacities and facili-
ties at transhipment points (for example trans-
ferring goods from ferry or rail to road), and
availability of fuel supplies and maintenance
facilities.
Road Transport
39. Light vehicles will be needed for staff
and for specific purposes such as ambulances,
and heavy vehicles for transporting cargo, and
for transporting refugees in repatriation oper-
ations.
40. There must be appropriate servicing fa-
cilities, including fuel, spare parts, and admin-
istrative support. Special arrangements, e.g.
establishing workshops, may be necessary.
Assessing and planning vehicle needs and
servicing facilities is described in Annex 2.
41. Drivers must be given training in UNHCR
procedures. A sufficient number of drivers
must be hired to ensure that recommended
working hours are not exceeded.
A system must be established to monitor and
control vehicle use, (see Annex 4 for an exam-
ple of a vehicle log sheet). For light vehicles,
drivers should be assigned to a specific vehicle
for which they should be responsible.
42. In some situations, urgent action may be
necessary in order to improve access roads.
Technical advice will be of paramount impor-
tance in deciding how improvements should
be made (seek advice through Programme
and Technical Support Section at Headquar-
ters). These improvements could be under-
taken by the ministry of transport (or appro-
priate authority), perhaps supported by
refugee labour. In some situations, careful
briefing will be required about alternative
routes in case usual roads are impassable.
43. Vehicles, bicycles, or animal or hand carts
could be used for final distribution. Observe
how local movement of supplies normally
takes place.
Transport Capacities
44. If a commodity is to be transported by
truck, the number of trucks needed should be
calculated from the following information:
i. The quantity of goods to be transported in
weight and volume;
ii. Type of truck available and its capacity in
weight and volume;
iii. How long a round trip takes (including
loading and offloading);
iv. Time allowed for routine maintenance ca-
pacity or time allowed for other known
factors (driver breaks);
v. A margin for unpredictable events (such as
breakdowns, accidents, bad weather, road
and bridge repairs). The size of this margin
will depend on many factors including the
likelihood of new arrivals and the need to
build up buffer stocks near the refugees. In
difficult conditions, the theoretical capacity
might need to be increased by 25% or
more.
45. To give an example for food:
i. The number of refugees served is 30,000
who need 500 g/person/day, which is total
15,000 kg / day, or 15 MT /day;
ii. Truck capacity is 20 MT per truck;
iii. The rainy season journey time from the
port of entry to a regional warehouse
serving the 30,000 refugees is 3 days out
and 2 days back;
iv. One day per round trip is added for rou-
tine maintenance;
v. The road surface can take a truck and
trailer with a combined payload of 20 MT.
46. Therefore it will take 6 days for one truck
to transport one 20 MT load, and 30,000 refu-
gees will require 90 MT of food every six days.
Accident rates increase markedly with tired
drivers.
Managing a transport fleet requires strong
administrative skills, good communications
and close coordination with the procure-
ment and other functions to ensure effi-
cient timing for collection and delivery.
Evaluate various transport corridors (includ-
ing reception capacity) for cost and speed
of delivery – even airlifts may not always
significantly reduce delivery time.
256

Therefore the theoretically required capacity
is for 4.5 such trucks. In such circumstances, it
is clear that six trucks would be the prudent
minimum.
47. Appendix 2 (Toolbox) sets out the capaci-
ties of different means of transport.
Transporting people by road
48. Logistical support will be necessary when
transporting people for e.g. repatriation opera-
tions or relocating refugees to another site. En-
sure there is close coordination with health and
community services. Take particular care to look
after vulnerable individuals, and minimize any
risk of family separation. Passengers must be
registered on a passenger manifest, wristbands
should be used whenever possible, and water
and food provided if it is a long journey. Ensure
trucks have safe access (for example ladders).
49. When transporting medically vulnerable
individuals such as pregnant women, it is
preferable to use buses or ambulances. If
trucks must be used, weigh the trucks down
with sand bags to minimize the roughness of
the transport. If there is a risk that some pas-
sengers might have a contagious disease,
disinfect the vehicles after the journey.
50. Determine the number of light and
heavy vehicles needed. These could include
minibuses for 8-12 passengers to transport
staff and vulnerable individuals, ambulances
or mobile clinics (ask health staff about specifi-
cations), vehicles for transporting possessions,
and mobile workshops.
51. If a convoy is necessary, plan for escort
vehicles at the front and back of the convoy. If
the operation involves many journeys over a
short distance, consider having roving patrols
with telecommunications, in case there are
problems or breakdowns.
Reception of Goods
x Have a single consignee and address and in-
form Headquarters of any changes;
x Use the internationally accepted marking
and packaging standards;
x Inspect goods on arrival and register insur-
ance claims: supplies can get lost or arrive
damaged;
x Advance arrangements with appropriate
government authorities and freight for-
warders will be necessary for rapid handling
of supplies from abroad;
x Develop and promulgate a clear policy for
customs clearance procedures for NGOs.
Consignment
52. Ensure offices sending supplies know
who the consignee is. The consignee would
normally be the Representative, with an indi-
cation in brackets of any special instructions,
for example "For (name of project/NGO)".
However, where UNHCR was not previously
present it may be better to consign c/o a UN
organization already well known in the coun-
try, for example UNDP, provided no delays
will result. Similarly, there should be a single
consignee and address at the camp level.
53. Whether purchases are made locally or
abroad, proper packing, labelling, marking
are essential. All organizations and donors
need to use a uniform system for marking or
labelling relief consignments – use the follow-
ing guidelines:
i. Colour code: the colours used for the relief
supplies are: red for foodstuffs, blue for
clothing and household equipment, and
green for medical supplies and equipment;
ii. Labelling: if necessary the consignment
should bear one of the international haz-
ard warning signs (fragile, no hooks, keep
dry, etc.). Consignments of medicines should
state on the outside of the package the
content and the medicines' expiration date
and whatever temperature controls are
necessary. English or French should be used
on all labels and stencilled markings,
though another language may be added. It
is essential that the final destination (or
port of entry) appears at the bottom of the
label in very large letters;
iii. Markings: all international or regionally
procured goods will normally be marked
with the UNHCR project code, purchase
order numbers, commodity, packing speci-
fications, port of entry and the consignee.
Relief supplies should always be packed
by commodity type. Mixed consignments
create problems in warehousing and in the
ultimate distribution at the receiving end.
The colour code recommended loses its
value if, for example, medical supplies are
packed in the same container as food;
Have the same consignee and address for
all items required from abroad for the UN-
HCR emergency operation.
257

iv. Size and weight: packing units should be
of a size and weight that one person can
handle (ideally, 25 kg; up to a maximum
of 50 kg) since mechanical loading and
unloading equipment may not be available
at the receiving end.
Advance notice should be sent to the con-
signee. The following information (preferably
in one document) is essential, for safe trans-
port and ease of handling at the receiving end:
i. Name of sender (or “shipper”) – normally
the Supply and Transport Section in Head-
quarters;
ii. Name of consignee;
iii. method of transport, the name of the
vessel or the number of the flight or truck,
estimated time of arrival, port or airport of
departure, and name of transporter (e.g.
aircraft of shipping company);
iv. A detailed list of contents, including
weight, dimensions, and number and type
of packing units;
v. A pro-forma invoice or gift certificate
showing the value of the consignment;
vi. If the consignment is insured then the type
of insurance, name of company, etc.;
vii. The clearing agent, including the name of
the person to be contacted in the receiving
country;
viii.Instructions or special requirements for
handling and storing the supplies.
An acknowledgement should be sent to the
sender as quickly as possible after consign-
ments are received, and indicate whether the
goods were received in good order and/or
there was any loss or damage.
Clearance Procedures
54. The supplies coming in for the operation
may far exceed the scope of the routine
arrangements between the authorities and
the local UN community. Problems and delays
may be avoided by discussing in advance the
procedures to be followed by UNHCR with
senior officials in the foreign ministry, ministry
of finance, customs authorities, and airport
and port authorities. The aim is immediate re-
lease of incoming supplies.
55. Arrangements will need to be made with:
i. The Civil Aviation Authorities (CAA) and
airport authorities for priority clearances
for relief flights (whether international
or national) and waiver of fees. These
arrangements include: over-flight clear-
ance; free landing rights, air traffic control
and parking; priority handling of aircraft
and charges at cost for handling services;
ii. The ministry of finance and customs
authorities for exemption from duties and
taxes of goods and services (such as the tax
element of landing fees and fuel tax).
Ensure the ministry of finance (as well as
the CAA) have been advised in advance of
planned airlifts for the operation.
56. UNHCR's cooperation and/or implement-
ing agreement with the government should
allow for the duty-free import of all items, pro-
vided that they are required for the operation
(see chapter on implementing arrangements,
and the UNHCR Checklist for the Emergency
Administrator). Special duties exemption and
customs clearance procedures may have to be
developed for the emergency.
Implementing partners’ clearance
57. UNHCR can undertake the customs clear-
ance for implementing partners’ relief supplies,
provided these meet the purposes of the emer-
gency operation. This will allow some control
over the arrival of clearly unsuitable goods, and
help in the coordination of material assistance.
58. Guidelines should make it clear to all
potential consignors that UNHCR will under-
take to clear only supplies for which notifica-
tion is received prior to dispatch and which
are considered appropriate. The guidelines
should be made available to implementing
partners active in the operation and to new
implementing partners on arrival.
A copy of these guidelines should be shared
with Headquarters and reference to this gen-
eral procedure made in any NGO briefings at
Headquarters, as well as in the first few gen-
eral sitreps.
Handling costs and other fees
59. The expenses incurred in customs clear-
ance, handling, storage, and onward move-
ment of supplies belonging to UNHCR should
Guidelines on customs clearance for imple-
menting partners should be drawn up as
early as possible in the operation.
Arrangements for clearance procedures and
duties exemptions must be made in ad-
vance.
258

be budgeted for. UNHCR might receive sup-
plies procured by an implementing partner on
their behalf, in which case all expenses in-
volved should normally be borne by the imple-
menting partner, and UNHCR will be the "con-
signee of convenience" (not the "owner" or
"donee"). However, in certain circumstances
and provided the supplies are items directly
foreseen in the UNHCR operation (for exam-
ple blankets, tents), UNHCR may also meet on-
ward transportation costs.
Inspection and Damage
60. All consignments must undergo a visual
and quantitative inspection on arrival (by
staff) and some deliveries will be required (un-
der government regulations) to undergo a
qualitative inspection by a government desig-
nated inspection company.
61. If during the inspection, visible damage is
noted, the damage must be clearly indicated
on the shipping documents and a claim lodged
against the last transporter within three days
of receipt of the goods. The claim should indi-
cate the dollar value at which UNHCR holds
the transporter fully responsible for the loss or
damage. A copy of the claim should be sent
to the Supply and Transport Section in Head-
quarters who will follow up. The value of the
loss or damage must include any associated
transport costs. If damage is not visible and the
packaging is undamaged, transporters will
only accept a claim if it is lodged within seven
days of receipt of the goods.
Headquarters should always be informed
immediately of any damage or shortfalls or if
the products do not meet specifications.
Insurance
62. Some damage, whether during transport
or storage, is inevitable and considerable sums
may be involved in the loss. Internationally
procured supplies are insured against loss or
damage in transit if their value is over a cer-
tain threshold ($200,000 in 1998) or the goods
are non-expendable (such as vehicles and
computers). Insurance claims must be regis-
tered at once.
Storage
x There must be appropriate storage capacity,
correctly sited;
x The requirement for buffer stocks must be
properly calculated and forecasted – do not
hoard “just to be prepared”.
Basic Requirements
63. Goods must be protected from damage
due to bad handling or improper stacking; the
adverse climatic effects of the sun, rain, cold
or humidity; attacks by pests; and bacteriolog-
ical decomposition of both food and non-food
items over time.
64. Storage facilities may be required for:
i. Initial storage near the port of entry;
ii. Transit storage at certain key transhipment
locations;
iii. Local storage no farther than one day’s
transport from the refugees;
iv. Storage at camps.
See figure 1 for information about location of
storage facilities.
65. Warehouses must be accessible in all sea-
sons and weather – plan well in advance of
the winter or rainy seasons. Existing govern-
ment warehousing should be used if it meets
operational requirements.
66. Security of supplies must be ensured.
Warehouses must be secure against theft, and
should be lit if possible. Storage for local
purchases should be the responsibility of the
supplier whenever possible. Particular atten-
tion must be paid to those items requiring
special storage.
67. A single large building is better than sev-
eral small ones, as long as there are sufficient
loading doors and access ramps. The doors
must be large enough to allow for quick load-
ing and offloading and small enough to keep
control of the entry and alleyways.
68. Organize the distribution and storage
system so that supplies are handled a mini-
mum number of times. This will not only incur
less costs, but also less damage and loss.
Remember the rule “first in first out” for stock
management and avoid offloading in the rain.
Considerations in Warehouse Selection
69. Warehouses should be well-constructed,
dry, well-ventilated, and provide protection
from rodents, insects and birds. The floor
should be flat and firm and the building
should be easy to access, with suitable arrange-
ments for loading and unloading (e.g. a ramp
or platform).
Do not accept supplies that do not meet
contract specifications.
259

70. When selecting a warehouse check the
following:
❏ State of the roof and ventilation;
❏ State of the walls and whether they are
water tight;
❏ State of the floor, its insulation and general
water drainage;
❏ Number of traffic lanes and doors;
❏ Availability of handling equipment and
labour;
❏ Utilities (water, electricity, toilets, fire pro-
tection);
❏ Office space and lodging for drivers and
guards;
❏ Special configuration as necessary for ex-
ample for fuel, construction material, water
reserves;
❏ Fences, guards, and secure doors and win-
dows.
71. Warehouse capacity required will depend
on the nature, variety and quantity of goods
supplied, the numbers of refugees they serve,
and what outside support they need. Buffer
stocks of essential items, particularly food and
fuel, should be built up close to the refugees.
Conversely, care should be taken not to hold
unnecessarily large stocks of items that are not
immediately required by the refugees, e.g.
seasonal items such as heaters or blankets.
72. The volume of a warehouse necessary to
store a given commodity may be roughly esti-
mated as follows. First calculate the volume of
the goods. As an indication:
If the goods can be stored to height of 2 me-
tres, the minimum surface area occupied by
the goods will be half their volume. Increase
this surface area by at least 20% to allow for
access and ventilation.
73. For example, the approximate size of a
store to hold 2 months' supply of the cereal
staple for 30,000 refugees receiving an indi-
vidual cereal ration of 350 g/day would be:
350 g x 30,000 x 60 days = 630 MT
1 MT of grain occupies 2 m3
Therefore 630 MT occupies 1,260 m3
.
1,260 m3
stored to a height of 2 m gives a sur-
face area of 630 m2
, add 20% for access =
756 m2
of floor space. A building some 50 m
long by 15 m wide would therefore be indi-
cated.
Warehouse construction
74. If suitable storage facilities do not exist,
they may have to be built. Local techniques,
materials and practices are likely to be the
most appropriate in the longer term. How-
ever, for rapid construction, it may be neces-
sary to use prefabricated (tent) warehouses as
a temporary measure. These should be care-
fully sited, protected from surface water by
digging ditches if necessary, and with raised
platforms inside (for example using pallets, or
groundsheets on sand). The contents must not
touch the tent walls. Prefabricated ware-
houses are held as part of the UNHCR central
emergency stockpile. They are 24 m long x
10 m wide with a capacity of between 750 to
1,100 m3
.
Stock Management
x Effective stock management and security
are imperative and must cover the whole
supply chain through to the final distribu-
tion to families or individuals;
x Report on stock levels, movements, losses,
damage and distribution using the UNHCR
Commodity Tracking System (CTS).
75. The stock management system should
ensure that initial low quantities of goods can
be put to best use and quickly into distribution.
Levels of relief may not meet total require-
ments of the beneficiaries – the agencies in-
volved must identify what goods should be
immediately distributed and to whom.
A sound stock management and distribu-
tion system is essential in order to identify
potentially critical shortages in time and
assure final delivery to the beneficiaries.
Sufficient stocks should be on hand to cover
likely interruptions in the delivery schedule.
As a rule of thumb, this should cover one to
three months distribution.
260
grain 2 m3
medicaments 3 m3
blankets 4-5 m3
(approx. 700 heavy
blankets per bale)
blankets (loose) 9 m3
tents (approx. 4-5 m3
25 family tents)
1 Metric Tonne of Occupies approximately

76. The stock management and distribution
system should identify what has been or-
dered, where the goods are, when they will
be delivered, and where they have been dis-
tributed. This information must be available
to those responsible for the operation.
77. Control mechanisms include verifying
the bulk consignments on arrival, physical
stock checks in the warehouses, individual
ration cards or distribution checks at the sites
and carefully calibrated measures (scales) for
final distribution. The nature of these mecha-
nisms will depend on the circumstances, but
they must be in place from the start and they
must provide real and not just theoretical
control. The supplies actually distributed to
the refugees must be reconcilable with those
known to have been delivered, those remain-
ing in storage, and those which are lost or
damaged.
78. In the emergency phase certain basic
controls should be established at once, in
addition to the controls over actual distribu-
tion. These are described in Annex 3.
79. The UNHCR Commodity Tracking System
(CTS) is a computerized tool for stock manage-
ment, which uses information from purchase
orders and shipping and warehouse documen-
tation (described in Annex 3), to track goods
from their arrival at the port of entry of the
country of operation, to the final distribution
point. An additional module (“pipeline man-
agement module”), which can be attached to
the CTS, tracks goods from the point of source
(globally) to the port of entry.
80. The stock control and distribution system
(including CTS) provides information to fulfil
reporting obligations – ensure the system
takes account of reporting needs as specified
by Community Services, Field and Programme
Officers. See UNHCR Commodity Distribution,
A Practical Guide for field staff for further
guidance, in particular on setting up a report-
ing system for distribution.
81. A Motor Item Management system,
(MIMS) is a computerized tool for fleet man-
agement, which keeps track of the mainte-
nance and repair of vehicles, generators, etc.,
of fuel consumption, vehicle insurance, and
the registration of vehicles, their re-deploy-
ment and disposal.
82. Assistance with setting up the CTS or
MIMS can be obtained from Supply and Trans-
port Section, Geneva.
Key References
Commodity Distribution – a practical guide for
field staff, UNHCR, Geneva 1997.
Emergency Relief Items, Compendium of
Generic Specifications.
Vol 1: Telecommunications, Shelter & Housing,
Water Supply, Food, Sanitation and Hygiene,
Materials Handling, Power Supply.
Vol. 2: Medical Supplies, IAPSO, Copenhagen,
1995.
Environmentally Friendlier Procurement Guide-
lines, UNHCR, Geneva, 1997.
Field Motor Vehicles, IAPSO, 1997-1999
Office Equipment, IAPSO, 1998.
Food Storage Manual, WFP, Rome, 1983.
Heavy Vehicles, Trucks, IAPSO, 1996-1997.
IAPSO catalogues (updated periodically) with
specifications, including: Most Frequently Pur-
chased Items, UNHCR, Geneva, June 1998 (up-
dated annually).
Stock Management, (Guide No. 6), ITC, Geneva,
1985.
Supplies and Food Aid Field Handbook, UNHCR
Geneva, 1989 (this is the same as Chapter 10 of
the UNHCR Manual).
UNHCR Manual, Chapter 4, UNHCR, Geneva,
1996.
UN Joint Logistics Cell: Standard Operating
Procedures, MCDU, Geneva, 1997.
261

262
These specifications can be useful in drawing up tender requests where local purchase is possible, to
assist in negotiations with suppliers, and to give a clear indication of what could otherwise be sup-
plied at short notice through Headquarters (some items are available in the emergency stockpile –
see Appendix 1, Catalogue of Emergency Response Resources).
1. Woven Dry Raised Blankets (Type A) (for warm climates)
Composition: Woven, minimum 30% wool. Balance of new cotton/synthetic fibres;
Size: 150 x 200 cm, thickness 4 mm;
Weight: 1.5 kg;
T.O.G.: 1.2 - 1.6;
(thermal resistance of garment)
Finish: 10 stitches/decimetre or ribbon bordered 4 sides;
Packing: In compressed water tight wrapping in pressed bales of 30 pcs. Each bale of 30 pcs would
be about 0.3 m3
volume and weigh approx. 48 kg.
2. Woven Dry Raised Blankets (Type B) (for cool climates)
Composition: Woven, minimum 50% wool. Balance of new synthetic fibre;
Size: 150 x 200 cm, thickness 5 mm;
Weight: 1.5 kg;
T.O.G.: 2.0 - 2.4;
(thermal resistance of garment)
Finish: 10 stitches/decimetre or ribbon bordered 4 sides;
Packing: Compressed water tight wrapping in pressed bales of 30 pcs. Each bale of 30 pcs would
be about 0.35 m3
volume and weigh 50 kg.
3. Heavy duty plastic bucket, 10 litre
Type: Heavy duty plastic bucket, multi purpose, with lid;
Material: High density polyethylene (HDPE), food grade material, conical seamless design.
Handle: Steel-wire bale handle, fitted with plastic roller grip, rust proof;
Thickness: Minimum 1.0 mm;
Dimensions: Approx. top diameter: 30 cm Approx. height: 30 cm; volume 0.01 m3
Weight: 450 g.
4. Jerry Cans, 10 litre
Semi-collapsible jerry cans
(Semi-collapsible jerry cans are the preferred option because of the much lower shipping
volume, but they are sometimes difficult to obtain locally.)
Type: Semi-Collapsible plastic jerry cans for drinking water;
Material: Manufactured of food grade HDPE (i.e. containing no toxic elements);
Construction: Semi-collapsible; built-in carrying handle, wide enough for adult hand; screw cap linked to
container by polymide string; jerry can opening 35 mm (inner diameter); 0.6 mm thick walls;
Impact resistance: Must withstand drop from minimum 2.5 m containing maximum volume;
Operating
Temperature: -20 to 50°C;
Weight: 200 g/pce;
Packaging: 150 pcs/wooden crate. Each crate weighs 49 kg, volume 0.38 m3
Non-collapsible jerry cans
As above, except non-collapsible, weight 400 g/pce; 1 mm thick walls; jerry can opening 40 mm (inner diameter)
5. Kitchen Sets
Kitchen Sets – Type A
a) 1 aluminium cooking pot, 7 litre, minimum thickness 1.75 mm, with lid minimum thickness 1 mm,
two cast aluminium handles, sandpaper finish.
b) 1 aluminium cooking pot, 5 litre, as above, minimum thickness 1.6 mm.
c) 5 aluminium bowls, minimum thickness 1 mm, 1 litre capacity, rolled edge border, sandpaper finish.
d) 5 deep aluminium plates, minimum thickness 1 mm, 1 litre capacity, sandpaper finish.
e) 5 aluminium cups, minimum thickness 1 mm, 0.3 litre capacity, with handle, rolled edge border,
sandpaper finish.
Annex 1: – Standard specifications for certain common relief items

263
f) 5 stainless steel table spoons, polished finish.
g) 5 stainless steel table forks, polished finish.
h) 5 stainless steel table knives, polished finish.
i) 1 kitchen knife with stainless steel blade, cutting edge 14/15 cm long, 2.5 cm wide with moulded plastic
handle.
j) 1 galvanized steel bucket, 15 litre, 0.5 mm thick, tapered with raised bottom, curled brim and metal arch
handle.
Packing: Individual carton: 30 x 30 x 33 cm = 0.02 m2
Weight: Approx. 5.5 kg
Kitchen Sets – Type B
Consists of the following items: a, b, c, (or d) e, f and optionally i).
Packing: 4 sets per carton: 56 x 56 x 19.5 cm = 0.06 m2
Kitchen Sets – Type C
Consists of the following items: a, c, (or d) e and f.
Packing: 4 sets per carton: 54 x 54 x 19.5 cm = 0.05 m2
6. Reinforced plastic tarpaulins in sheets
Sheets are 4 m x 5 m each.
Material: Made of woven high density polyethylene fibre; warp x weft (12/14 x 12/14 per inch);
laminated on both sides with low density polyethylene with reinforced rims by heat
sealing on all sides and nylon ropes in hem; 1000 dernier Min. Stabilized against ultraviolet
rays and excess heat for long outdoor exposure (1.5% loss of strength in yarn and in
lamination); provided with strong aluminium eyelets or equivalent on four sides of the
sheet at 100 cm centre to centre.
Dimensions: Thickness: 200-230 microns; weight 190 g/m2
; density 0.9-.95 kg/cubic decimetre.
Tensile
strength: Min. 600 N both directions of warp and weft (BS 2576, 50 mm grab test or equivalent).
Tear resistance: 100 N Min. both directions (BS 4303 wing tear or equivalent).
Heat/cold
resistance: Flammability: flash point above 200°C.
Colour: Blue one side white on reverse; UNHCR logo.
Weight: 4.8 kg per piece, packed in bales of five, weight per bale 22.5 kg; volume per bale 0.045 m3
.
7. Soap bars:
Composition: Min. 70% fatty acid: max. 20% moisture, max. NAOH 0.2% max. NACL 1.25%; no mercury
content. Local standards of lower content of fatty acid might be acceptable.
Weight: Soap bars should be approx. 125 g/piece.
8. Double Fly double fold centre pole tent
Family sized tent.
External
dimensions: 4.4 m x 4.4 m (outer fly), surface area 19.36 m2
, centre height 3 m.
Internal
dimensions: 4m x 4m, floor area 16 m2
, centre height 2.75 m, side wall height 1.8 m (25 cm distance be-
tween outer and inner fly).
Material: Cotton canvas; 100% cotton yarn (10/2 x 10/2 twisted in warp 42/44, weft 24/26 threads per
inch, plain weave); 15-16 oz/m2
. Canvas to be free of weaving defects and finishing faults
adversely affecting strength, waterproofness and durability. Water proofing/resistance to
water penetration by paraffin wax emulsion and aluminium acetate to withstand 20 - 30
cm hydrostatic head. Stabilization against decomposition of the fabric (rot-proofing) with
copper napthanate.
Poles/ropes/pegs: 4 aluminium or bamboo poles for roof corners (2 m x 22 mm diameter); heavy duty sec-
tional steel tube (or aluminium or bamboo) centre pole, plastic clad or galvanized (3 m x
50 mm diameter). Complete with ropes made of 9mm 3 strand polypropylene; 24 T-Type
bars 40 mm x 40 mm, 50 cm long; 12 iron pegs (25 cm x 9 mm diameter), one iron hammer
of 1 kg; one repair kit with one straight and one curved needle with 20 m of suitable
thread for tent repair, illustrated assembly instructions with list of contents.
Groundsheet: Reinforced PVC groundsheet 250g/m2
.
Packing: All rolled into a canvas bag. Weight 100 - 130 kg, dimensions: 2 m x 50 cm diametre (0.4 m3
).

264
1. Assessing needs
Assessing vehicle needs involves not only calculating the vehicles which are needed, but also assessing
what vehicles it will be possible to operate and maintain in the area of operation. Make sure that the
existing infrastructure (roads, workshops and fuel) is fully evaluated before obtaining vehicles.
What will the vehicles be used for and how many are needed?
Heavy vehicles
i. Will the vehicles be used for – transporting people or relief supplies?
ii. What will be the frequency of use (one off transport, or scheduled deliveries for distribution)?
iii. What is the total quantity (of goods or people) to be transported?
iv. Are any special configurations necessary: if a truck is to carry dangerous goods e.g. fuel, ensure
that dangerous goods regulations are followed.
Light vehicles
i. How many vehicles are needed for staff? In an emergency, it is advisable to have a ratio between
light vehicles and international staff of 1:1. In more stable situations, slightly fewer vehicles per
staff member may be acceptable.
ii. What special vehicles might be needed (e.g. ambulances for transporting vulnerable refugees)?
The main categories of light vehicles which might be useful are: sedan and minibus (4x2 only),
and station wagon, van, pick-up, and ambulance (both 4x2 or 4x4).
What configurations of vehicles are needed?
i. What is the condition of the routes that will be used? tarmac roads, good unpaved roads (with
stone or macadam surface), sand or dirt trails, or no roads (in which case consider animals for
transport).
ii. How long are the journeys expected to be?
Light vehicles
i. What configuration light vehicles should be used according to road conditions: 4x2 or 4x4?
Heavy vehicles
i. What configuration for heavy vehicles should be used according to the road conditions: 4x2, 4x4,
6x2 or 6x4?
ii. Should trailers be used? Trailers can be more economical, i.e. - with a relatively small investment
one is able to transport twice the amount of cargo. The following configurations for heavy vehi-
cles (trucks/trailers) could be appropriate:
i. Truck with trailer (6x2 or 6x4) with a combined capacity of 20-40 MT for transport up to 3,000 km
2-7 day trip, normally for use on tarmac roads;
ii. Truck (6x4, 4x4, 4x2) for intermediary distribution with a capacity of 10-15 MT (normally 1 day
trip) on unpaved roads with stone or macadam surface,
iii. 5-10 MT capacity trucks on tracks and trails (generally for trips of half a day or less up to distribu-
tion points).
Trailers
Prior to purchasing trailers, the following additional questions should be considered:
i. Are the roads and bridges suitable to drive on with trailers?
ii. Are the drivers capable of driving with trailers?
iii. What are the regulations in the country regarding the weight and length of truck-trailer combi-
nations?
iv. What type of trailer is needed? Can the trucks be operated with trailers or would tractor trailers
be better? Can the trailer be transported on the truck on empty runs? Ensure there are air-
brakes, a towing hook, extra fuel tanks and spare wheels. Particular attention must be paid to
the tow-bar strength and number of axles.
Annex 2 – Planning Vehicle Needs

265
What makes and models of vehicles would be appropriate?
i. What makes of vehicles are maintained (to supplier specifications) by local service dealers? The
heavy vehicle fleet must be standardized to suitable makes and models already operating in the
country. If a mixture of models of truck is unavoidable, it may still be possible to standardize to a
single make.
ii. What is the availability of vehicles: the spare capacity of local transport companies, and possibility
of purchasing new or second hand vehicles?
Infrastructure (fuel, workshops)
i. Is there a service network available with the know how to maintain the fleet, or will it be neces-
sary to set up dedicated workshops and fuel stations?
ii. Are there sufficient spare parts and tyres in the local market, or must they be imported?
iii. Is fuel (diesel and gasoline) and are lubricants readily available in the area of operation? (note
the number of fuel stations, capacity and likely availability of fuel at each).
2. Sourcing vehicles
Vehicles (whether light or heavy) can be: rented locally, provided by the government, loaned from
another UN Office in the region, re-deployed from another UNHCR operation, or purchased. Heavy
duty vehicles can also be provided under a standby arrangement (see Catalogue of Emergency Re-
sponse Resources, Appendix 1). If trucks are to be purchased internationally, send a request to the
Supply and Transport Section in Headquarters by completing the appropriate form (Operations
Analysis Form for Trucks – request this from Headquarters if necessary).
In order to analyze the procurement options, take into account the following:
i. Expected length of operation. If the expected length of the operation is short, (3 - 6 months), or
the situation is very unstable, it may be better to rent, loan or re-deploy rather than purchase ve-
hicles, because of high initial costs;
ii. Comparative costs. Compare the cost of renting vehicles with the cost of purchasing them (in-
cluding delivery costs). Consider purchasing second-hand vehicles if they are in good enough con-
dition;
iii. Servicing and other benefits. Take into account that renting vehicles will include servicing and
other benefits (such as drivers, insurance) which would need to be separately arranged if the ve-
hicles are re-deployed, purchased, or loaned;
iv. Time. Light vehicles can be quickly deployed from the UNHCR emergency stockpile (see Appen-
dix 3). Purchasing new vehicles can be very time consuming, because of long delivery times (up to
8 months if they are manufactured to order, which is usually necessary for the configuration of
heavy duty vehicles for UNHCR operations). If there is an urgent need for heavy vehicles, inform
Supply and Transport Section at Headquarters of the vehicle requirements and infrastructure,
who will look into possible options (re-deployment, purchase etc.) in the international market
and regionally. If it becomes necessary to purchase vehicles, early notification and action will be a
priority;
v. Other options. Consideration could also be given to the possibility of “grafting” the heavy vehi-
cle fleet onto a large national or regional transport organization. That organization’s infrastruc-
ture, including workshops, offices, etc., would then be immediately available as would its accu-
mulated experience of operating in the country.
The vehicles exclusively involved in the operation should be individually numbered and distinctively
marked – for example, white with blue markings.

3. Fuel and Maintenance Facilities
There must be adequate servicing facilities, including sufficient supplies of fuel and spare parts.
Maintenance and repair must be carried out regularly and as per manufacturers’ standards, either
through local service dealers or through a UNHCR workshop. Regular maintenance will prevent mi-
nor problems turning into major ones. Proper driving and care by the drivers can be an important
factor in keeping vehicles on the road and prolonging their life. Adequate training, incentives and
supervision will be the key to this.
Fuel and lubricants
• Assured supplies of fuel and lubricants must be available where they are needed (make sure oil
and lubricants are in accordance with manufacturer’s specifications – and new). This may require
separate, secure storage arrangements and an additional fleet of fuel tanker vehicles. It may be
necessary to establish fuel stations to ensure fuel supplies.
Spare parts and workshops
Consumable items (filters, shock absorbers, brake linings etc.) and spare parts must be available, es-
pecially tyres: tyre life may be no more than 10,000 km in rough desert or mountain conditions.
Arrangements for maintenance and repair include:
i. Making use of or strengthening existing facilities:
Existing commercial, government or UN facilities (e.g. WFP or UNDPKO) may be able to service
additional UNHCR vehicles or could be strengthened in order to do so;
ii Establishing dedicated workshops:
Workshops may have to be established by UNHCR solely for the operation – for example a cen-
tral, fully equipped workshop, including personnel, tools, soldering capacity, spare parts store,
and transport administration office. In addition, depending on the size and area of the opera-
tion, consider also having smaller workshops and transport administration offices closer to iso-
lated destinations;
iii. Mobile workshops and heavy recovery vehicles may also be necessary:
Always ensure there is recovery capacity for trucks, such as mobile workshops, recovery trucks,
winches, etc.
266

This annex gives an indication of the basic components of a stock management system. The mini-
mum level of controls necessary will vary with each operation. Simple controls and accounting es-
tablished from the start will be much more effective than a sophisticated system later. No system will
be effective unless it is understood by those required to operate it. Training will be required for all
staff involved. All these documents are UNHCR forms apart from waybills. The computerized UNHCR
Commodity Tracking System (CTS) relies on the information contained in this paper system.
1. Stock Control
i. Pipeline report: each order or consignment (including contributions in kind), should be tracked
using a pipeline report. This records all stages of stock movement from the initial request for
goods through, as applicable, requests for tenders, placing of order, notification of shipment,
planned delivery time and place, actual time of arrival, and distribution details.
ii. A simple board where progress can be monitored visually is likely to be very useful and can be set
up at once.
2. Source Documents
Source documents identify the quantity of the commodity, specifications, packaging, value and
origin.
i. Purchase order. This defines the order: specifications, number of units ordered, price/unit, total
price, packaging, date of purchase, supplier, destination etc. It should make reference to the
legally enforceable standard conditions of contract.
ii. Contribution Advice Form (CAF)/Donation Advice Form (DAF). When contributions in kind are
pledged, Fund-raising and Donor Relations Services in Headquarters issues a CAF or DAF. This
gives similar information to a purchase order and the information should be used to track the
goods until final distribution in order to account to the donor as stipulated in the CAF/DAF.
3. Authorization Documents
i. Release Request. This is a formal request for goods which authorizes warehouse staff to release
goods from stock.
ii. Transporting/Warehouse Request. This gives formal approval for NGOs to use UNHCR transport
or warehouse facilities for their goods.
4. Certification Documents
There are a number of documents which are used to certify that goods have been received, deliv-
ered, and/or sent in good order.
i. Waybill/Air Waybill/Bill of Lading. This is the shipping document and contract with the trans-
porter showing the destination and accompanies the goods from the port of loading to the con-
tracted destination in duplicate. This document is the basis for customs clearance and enables
staff to check goods actually received against those loaded. Duplicate copies are also used by pro-
curement staff to verify goods dispatched against those ordered (i.e. against the purchase order
form). Where the movement is between UNHCR warehouses, use the delivery note (attached as
Annex 4).
ii. Release Note. This is used when goods are collected at the warehouse and the goods leave
UNHCR’s stock control system – the person (driver or consignor, for example an NGO) who collects
the goods certifies that goods have been received in good order.
iii. Delivery Note (see Annex 4). The delivery note is sent with the goods when they are transported
(under UNHCR’s control) to another location (for example another UNHCR warehouse). The re-
ceiver of goods signs the delivery note to certify that the goods have been received in good or-
der, and a signed copy is returned to the sender. It is used when the goods have been sent by rail,
road or barge (an “Aircargo Manifest” is used where the goods have been transported by air).
iv. Receipt Note: Where goods have been received without a delivery note or waybill/bill of lading, a
receipt note is signed by the receiver of the goods and sent to the sender for certification.
267
Annex 3 – Stock Management Systems

5. Warehouse documents
Whatever the size of the warehouse or store and wherever it may be located, the minimum recom-
mended book-keeping controls are those outlined below. They must be complemented by routine
inspection to ensure goods are properly stored and protected, and by a periodic audit.
i. Daily Incoming Shipment Log Sheet. This is used to record basic details of all inward consign-
ments – description of goods, quantity, supplier, name of person receiving and date of receipt,
with cross reference to waybills (above).
ii. Daily Outgoing Shipment Log Sheet. This is used to record basic details of all outward consign-
ments – description of goods, quantity, destination, and date of dispatch, (with cross reference to
waybill, delivery or receipt note).
iii. Stock card (sometimes called a bin card). One stock card for each different commodity in the
warehouse is used to record every in and out movement of that particular commodity, with cross
reference to the appropriate entries in the incoming/outgoing log sheets. It gives a running bal-
ance. Where possible those actually receiving and issuing the goods should not also be responsi-
ble for maintaining the stock card.
iv. Daily stock report (see Annex 4). This gives basic details of goods in stock and the quantity, value,
weight of these commodities for each warehouse location.
v. Loss/damage report: to report loss or damage to stock (whether incurred during transport or
storage).
Movement of goods
The easiest control to ensure that goods reach their destination may be to make (final) payment (for
the goods, of the driver or transporter, as applicable) conditional on return of the certified duplicate
of the Delivery Note or Waybill. More comprehensive controls and measures (e.g. monitors) may be
required later, and are anyway needed to ensure that goods reach their destination (in the worst
case, this control only indicates that they did not). But provided the signatories for both authoriza-
tion and receipt are carefully chosen, and signatures controlled (combining them with a UNHCR seal
is recommended), this should be an effective initial safeguard.
268

269
Annex 4
UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
Vehicle Daily Log Sheet
Date: Starting Mileage:
ss Oil ss Water (Radiator ss Brakes ss Front Lights ss Rear Lights
& Windscreen Washer) (Foot & Hand)
ss Tool Kit & ss Spare Tyre ss Vehicle Clean ss Full Tank ss Radio Check
Jack
Vehicle Check:
Driver (Print Name): Driver’s Signature:
Destination Passengers Time Time In Official / Starting Ending
Out Private km Reading km Reading
Fuel (liters): Mileage when fueled:
Fuel (liters): Mileage when fueled:
Engine Oil (liters): Engine Oil (type):
Remarks:

270
Annex 4
UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES
Delivery Note
Distribution:
2 copies for Destination * (Yellow and Blue)
1 copy for UNHCR (White)
1 copy for Driver (Pink)
1 copy for Dispatch Warehouse (Green)
Delivery Note No.
Page _______________ of _______________ Pages
Issuing Warehouse / Location (Consignor) Release Authority
Receiving Warehouse / Location (Consignee) Convoy Number (if applicable)
Final Destination Container Number (if applicable)
Route Transporter (Print Contractor Name)
Rail Wagon Driver (Print Name)
Vessel or
Vehicle Plate No. Signature
Control No. Item Description Packing Pieces PU Weight No. of PU No. of PU Loss / Damage
PO or Donor Unit (PU) per PU Gross Kg Loaded Unloaded Remarks
Unloading Supervisor (Print Name): Date Signature Unloading Time:
Start Finish
1. The Consignee at the receiving warehouse must check the quantity delivered and note any loss or damage.
2. ** Any losses or damages must be noted on this form by the Unloading Supervisor.
3. * The consignee at the receiving warehouse must sign all three copies of this Delivery Note and hand over two
copies signed and stamped to the driver who will return the Blue copy to the Issuing Warehouse / Consignor.
** All items have been RECEIVED except as circled and as per remarks above, or on the reverse;
Loading Supervisor (Print Name): Date Signature Loading Time:
Start Finish
** All items have been LOADED
Delivery Note prepared by (Print Name): Date Signature
Total No. of PUs Loaded Total Kg Loaded
OFFICIAL SEAL
OFFICIAL SEAL

271
UNITEDNATIONSHIGHCOMMISSIONERFORREFUGEES
DailyStockReport
Preparedby:
Checkedby:
Distributed:
Organization/Office:Location:Date:
CommodityStocksQuantityinPiecesorNetKgsRemarks:
ControlNo.DescriptionPackingPiecesperNetKgOpeningBalanceIssuedReceivedClosingBalance
POorDonor(Specific)Unit(PU)PUperPU

Overview
UNHCR’s Role in Voluntary Repatriation Operations 5-10 275-276
Conditions for a Voluntary Repatriation 34-54 276-278
Voluntary Nature of Return
Treatment on Return
Continued Asylum for Those who Remain Refugees
Other Protection Concerns
Preparing for Repatriation 55-60 278-280
Being Prepared for Spontaneous Repatriation
Agreement Between the Parties
Coordination
Staff
Estimation of Numbers
Likely Routes of Return
Information Campaign
Departure
On Route 61-69 280-281
Organized Repatriation
Mass Spontaneous Repatriation
Travel Formalities
On Arrival in Country of Origin 282-283
Registration on Arrival
Monitoring and UNHCR Presence
Reception by Resident Population
Material Assistance
Access to Land and Property
Landmines
Key References 283
Annexes
Annex 1: Sample Voluntary Repatriation Form 286
Annex 2: Types of Transport 287-289
VoluntaryRepatriation19
273

Situation
Voluntary repatriation operations, even when planned in advance, may have many of the
characteristics of an emergency, as defined in this Handbook. They often have to be organized
at short notice and require “an extraordinary response and exceptional measures”. Mass
unplanned repatriation, especially when carried out in less than optimum conditions can resem-
ble an emergency caused by a sudden influx of refugees.
Objectives
To seek permanent solutions for the problem of refugees by assisting with their voluntary repa-
triation in safety and dignity and their successful and durable reintegration into their home
society.
q The decision whether or not to return home belongs to the refugees. They should neither be
forced to return, nor prevented from doing so;
q The voluntary nature of the repatriation must be verified and safeguarded by UNHCR.
Action
q Deploy sufficient staff to collect information on the intentions of the returnees and to assess
whether the repatriation is voluntary or not;
q Collect information in the country of origin concerning the conditions for return, share this
information with the refugees;
q Define the nature of UNHCR’s involvement in the repatriation, communicate this to all staff,
and to governments and other agencies as appropriate;
q Provide assistance to returnees on the way home and upon arrival, if required, in line with the
nature of UNHCR’s involvement in the repatriation.
274

Introduction
1. Voluntary repatriation operations can
have many of the characteristics of an emer-
gency operation in that they too may require
"extraordinary response and exceptional
measures" and often have to be organized on
short notice. This chapter gives brief guidance
on voluntary repatriation particularly in emer-
gency circumstances, but further reference
must always be made to the Handbook, Vol-
untary Repatriation: International Protection,
UNHCR, 1996.
2. Voluntary repatriation is the preferred
solution for the plight of refugees. Article 1 of
the Statute requires the High Commissioner,
to assist "Governments and, subject to the ap-
proval of the Governments concerned, private
organizations to facilitate the voluntary repa-
triation" of refugees falling within the scope
of the Statute.
3. Voluntary repatriation is usually charac-
terized either as:
i. “Organized” – i.e. where refugees return
in an organized manner assisted by UNHCR,
or
ii. “Spontaneous” – i.e. where refugees return
by their own means rather than as part of
an organized operation.
4. Spontaneous return may take place un-
expectedly, sometimes in conflict situations.
UNHCR needs to position itself to provide timely
and effective protection and assistance along
routes of return and in the country of origin. In
addition information on the conditions prevail-
ing in the country of origin should be provided
to the refugees (e.g. concerning landmines,
routes of return and border conditions).
Spontaneous, mass repatriations are the most
likely to require an exceptional response and
extraordinary measures.
UNHCR’s Role in Voluntary
Repatriation
5. UNHCR’s role in voluntary repatriation
includes the following:
i. Verify the voluntary character of refugee
repatriation;
ii. Promote the creation of conditions that are
conducive to voluntary return in safety and
dignity;
iii.Promote the voluntary repatriation of
refugees once conditions are conducive to
return;
iv. Facilitate the voluntary return of refugees
when it is taking place spontaneously, even
if conditions are not conducive to return;
v. Organize, in cooperation with NGOs and
other agencies, the transportation and re-
ception of returnees, provided that such
arrangements are necessary to protect their
interests and well-being; and,
vi. Monitor the status of returnees in their
country of origin and if guarantees given by
the country of origin are adhered to. Inter-
vene on behalf of the refugees if necessary.
6. UNHCR should maintain objective and up-
to-date information about the situation in the
country of origin. Personnel on the ground
should stay in close touch with refugees’ think-
ing on the possibility of voluntary repatriation,
and keep the refugees and concerned govern-
ments informed accordingly.
7. A distinction should be made between
“promotion” and “facilitation” of voluntary
repatriation. Repatriation should only be pro-
moted when it appears, objectively, that the
refugees can return in safety and with dignity1
and the return has good prospects of being
durable. UNHCR can promote voluntary repa-
triation without being in charge of organizing
all aspects of the return movement. Frequently,
members of a group will make their own
arrangements for return, with or without
assistance from UNHCR.
8. When UNHCR does not consider that,
objectively, it is safe for most refugees to re-
turn, but even so refugees indicate a strong
desire to return voluntarily and/or have begun
to do so on their own initiative, UNHCR must
be careful not to promote the repatriation,
but may take some steps to facilitate it.
9. Facilitating repatriation can, depending
on the circumstances, include providing infor-
mation to the refugees, advising on the limits
of UNHCR protection and material assistance
UNHCR must make clear to the authorities
and the refugees that support for such
repatriation is based on respect for the
refugees’ free decision to repatriate and
cannot be interpreted as an indication of
adequate security.
275
1
“Safety” means legal safety, physical security and material
security or access to land or means of livelihood. “Dignity”
includes the concept that the refugees are treated with re-
spect by national authorities including restoration of all
their rights.

during and after their return, negotiating
amnesties, establishing a presence in the coun-
try of origin and monitoring their treatment.
The issue of material assistance requires careful
handling, so that assistance is not interpreted
as a pull factor nor as promotion of repatria-
tion by UNHCR.
10. Where there is a mass spontaneous
repatriation in conditions where UNHCR does
not consider that, objectively, it is safe for
most refugees to return, and in emergency
conditions, Headquarters advice should be
sought to define UNHCR’s role in such circum-
stances.
Conditions For a Voluntary
Repatriation
11. In a voluntary repatriation, there must be:
x Safeguards as to the voluntary nature of the
return;
x Safeguards as to treatment upon return;
x Continued asylum for those who do not
repatriate and remain refugees.
Voluntary Nature of the Return
12. Ensuring the voluntary nature of the re-
turn includes ensuring
i. The decision to repatriate is made freely;
ii. The refugees are making an informed deci-
sion based on an accurate country profile;
iii.The decision is made expressly.
13. Voluntariness must be viewed in relation
both to conditions in the country of origin
(calling for an informed decision) and the situ-
ation in the country of asylum (permitting a
free choice).
14. A field office should analyze both fac-
tors, relying for the first, to a large extent, on
direct interviews with all segments of the
refugee community, including women. Con-
sider refugee attitudes both towards changed
circumstances in their home country and to-
wards the situation in the country of asylum.
15. Voluntariness also means that the
refugees should not be prevented from return-
ing. In certain situations, economic and political
interests in the country of asylum may lead to
interest groups trying to prevent repatriation.
16. What ever the nature of the repatria-
tion, the refugees should be kept fully in-
formed of the situation in the country of ori-
gin in order to guarantee the voluntary na-
ture of the return. Though refugees are often
already well informed, it may be necessary to
provide additional information on the situa-
tion in their home country.
17. Information should be available about
their planned reception and prospects for
reintegration into national life. They will
want to know if they have the right to repos-
sess their old houses and land, what the
type and amount of material support they
will initially receive, what they can take with
them, etc.
18. Many of their questions may be best
answered by:
i. Arranging for refugee representatives (in-
cluding women) to make a visit to the home
area to see the situation at first hand, if this
is possible (go and see visits);
ii. Assisting with the exchange of letters;
iii.Enabling communication by radio with rela-
tives in the country of origin;
iv. Displays of information about home condi-
tions;
v. Formal or informal discussions with recent
visitors to the area of return, or through
visits to the refugee camps of returnees or
country of origin local authorities.
19. Whatever the method, care must be
taken to ensure that the refugees are given as
fair (and objective) a picture as possible of
conditions in their home area.
20. The refugees must freely express their
intent to repatriate. They may be unused to
taking individual or family decisions of this
nature, but programmes must be structured
so that their rights in this regard are safe-
guarded, for example by using volrep declara-
tion forms.
21. In instances of organized return, the use
of a voluntary repatriation declaration form is
recommended (see Annex 1). Where there is
any risk of coercion, either from outside or by
factions among the refugees, the form should
be signed in private in front of a UNHCR offi-
cer or other neutral witness. He or she may
need to interview the refugees to ensure that
their decision is truly voluntary. Where circum-
stances allow, more informal confirmation of
voluntariness than these may be used and
simple lists of names may suffice.
Voluntariness means there should be no
pressure on the refugee to repatriate.
276

Treatment on Return
22. The durability of voluntary repatriation
depends, to a large extent, on the protection
given to returnees during their reintegration
into their home country.
23. The state of origin bears responsibility
for the protection of returnees, its nationals.
However, UNHCR involvement with returnees
is justified by virtue of its protection role on
behalf of refugees and the Office’s statutory
responsibility to seek voluntary repatriation as
a durable solution for refugees.
24. UNHCR cannot guarantee safe treatment
to the returnees, though they will often re-
quest such assurances. UNHCR’s involvement
with returnees is set out in more detail in the
UNHCR Handbook, the Voluntary Repatriation
Handbook, which includes information on
amnesties and monitoring.
Amnesties, Assurances, Guarantees
25. In any voluntary repatriation, appro-
priate legal safeguards are essential. UNHCR
recommends that, in addition to conditions
set out in a repatriation agreement, govern-
ments independently promulgate amnesties
or legal guarantees for returnees. Such decla-
rations should include the right to return,
freedom of residence, and the provision of an
amnesty. As a minimum, they should stipulate
that returnees not be subjected to any puni-
tive or discriminatory action on account of
their having fled their country.
26. If the government consults UNHCR when
drawing up an amnesty, it is particularly
important to propose that the amnesty should
be both:
i. A group amnesty – the amnesty should be
extended on a group basis, rather than re-
quiring individual determination;
ii. A blanket amnesty – the amnesty should
whenever possible be a blanket one, not dis-
tinguishing between different types of prior
‘crimes’. Such distinctions can create major
problems, for example in a situation where a
clear differentiation between political and
criminal offenses may not be possible. Unless
the amnesty is a blanket one, repatriates
may not know if they are covered until they
return, which may be too late. If a complete
blanket amnesty is not possible, then a time
limitation on the amnesty (offenses commit-
ted before or after or between given dates)
should be the aim.
Monitoring
27. UNHCR must have direct and unhindered
access to returnees to monitor their safety and
reintegration conditions. This should include
access to prisons or detention centers (liaison
with ICRC and Human Rights will be important
in this regard as well as information-sharing
with other NGOs working with returnees).
28. If returnees are at risk due to inadequate
state protection, UNHCR should intervene on
their behalf as appropriate, for example by
remedial action, or formal protest at local,
national or even regional level, and ensure
there is good reporting. If the insecurity per-
sists, UNHCR would have to review its policy
on return.
29. UNHCR’s returnee monitoring role alone
will never provide a mechanism for ensuring
the safety of returnees and respect for inter-
national human rights standards in the coun-
try of return. It can be a helpful influence to
enhance respect for amnesties, guarantees,
the rule of law and human rights but should
never be seen as a substitute for state respon-
sibility.
Continued Asylum for Those who Remain
Refugees
30. Any voluntary repatriation programme
must be complemented by measures to ensure
continued safe asylum of refugees and inter-
national protection for those who choose to
stay longer in the country of asylum. Some
refugees may continue to harbour a well-
founded fear of persecution and who there-
fore do not wish to repatriate. There may be
others who delay their decision, or even ini-
tially decide against repatriation, in order to
see how the first fare.
31. This may mean the continuation of any
existing operation, but for a reduced number
of beneficiaries. Local integration in the coun-
try of asylum is the preferred option for a
residual caseload of refugees who remain af-
ter the completion of a repatriation pro-
gramme and who are unable for one reason
In cases of massive spontaneous return,
completion of a voluntary repatriation form
will not be realistic and UNHCR must posi-
tion officers along the routes of return to
monitor, interview and intervene where
necessary to determine if instances of coer-
cion are taking place.
277

or another to return to their country of origin.
However, in rare circumstances, it may mean a
resettlement project of some kind for those
who remain refugees.
32. If there is a serious problem of coercion,
or intimidation, it may be necessary to move
those who decide not to repatriate to another
location immediately after they have reached
this decision. This, too, should be foreseen and
covered in any voluntary repatriation agree-
ment.
Other Protection Concerns
Vulnerable groups
33. Throughout all phases of the operation
particular attention has to be paid to vulnera-
ble groups such as unaccompanied children,
unaccompanied elderly, the disabled and
chronically ill as well as specific needs of un-
accompanied women and single heads of
households. In large scale spontaneous repa-
triation movements, family members may be-
come separated during the operation and it
will be necessary to establish tracing services
to reunite families. During registration the
identity of vulnerable refugees, particularly
those with special needs, and of persons with
close links to the vulnerable in the country of
asylum or country of origin, should have been
recorded.
Preparing for Repatriation
34. The steps below should be considered in
any kind of repatriation, including in emer-
gency circumstances. The management princi-
ples described in chapters 1 to 9 should be re-
ferred to (e.g. planning, needs assessment and
implementation) and reference should also be
made to chapter 18 on supplies and transport.
Being Prepared for Spontaneous
Repatriation
35. Proactive steps to ensure preparedness
for spontaneous repatriation include:
i. Being well informed about the refugee
caseload, in particular its origin, history,
composition, reasons for flight, and its view
of developments in the country of origin;
ii. Liaising closely with the UNHCR office in
the country of origin to determine whether
internally displaced people are returning
home or other developments which could
lead to a return movement. Such return
movements are often sparked by refugee
fears that they could lose their land, prop-
erty or jobs if they do not return;
iii.Being in close touch with the prevailing
concerns of the refugees.
36. If indicators for a spontaneous repatria-
tion are present, contingency planning should
take place, including identifying protection and
material assistance needs in the country of
origin and en route, and establishing a capacity
for monitoring in areas of return including a
direct UNHCR or operational partner presence.
Agreement Between the Parties
37. Whenever possible, a formal voluntary
repatriation agreement should be concluded
between the governments of the countries
of asylum and origin and UNHCR in the form
of a tripartite agreement. A tripartite commis-
sion should in any event be established as
soon as possible when voluntary repatriation
is forseen. However, it is important that
UNHCR not enter into tripartite repatriation
arrangements without due consultation with
the refugees, and that their preoccupations
are always kept foremost.
38. UNHCR's role in developing repatriation
agreements is to:
i. Work with the two governments to ensure
that any such agreement respects the basic
protection considerations already outlined;
ii. Help provide material assistance, where
necessary, to enable the agreement to be
implemented;
iii.Monitor the return programme, with par-
ticular attention to protection, and to en-
sure free and unhindered access will be
given to returnees. UNHCR should also be
present in the country of origin to monitor
returnee reintegration.
39. The actual content and scope of the
formal agreement will depend on the circum-
stances. An example can be found in Annex 5
in the Handbook Voluntary Repatriation Inter-
national Protection Handbook.
40. The question of whether those wishing
to repatriate are in fact nationals of their
claimed country of origin may arise. Responsi-
bility for determining this rests with the
government of the country of origin. How-
ever, if particular issues arise over nationality
claims or problems related to statelessness
that cannot be resolved at field level, contact
HQ for advice on how to proceed.
278

Coordination
41. UNHCR is likely to be responsible for the
practical coordination of an operation which
by definition will involve more than one
country.
42. Cross border communication and coor-
dination between UNHCR offices on both sides
of the border can make or break an operation.
43. One UNHCR officer should be desig-
nated with overall responsibility for the repa-
triation operation in countries of asylum and
origin, and for the actual movement, for
example the Representative in the country of
origin. The need for a coordinator is even
greater when substantial repatriation will
take place from more than one country
of asylum. The designation of a focal point
officer at Headquarters is equally important.
Staff
44. Because of UNHCR's protection responsi-
bilities, such operations are often staff-inten-
sive in the field. UNHCR staff may be needed
to:
❏ Witness the refugees' voluntary declaration
of a wish to repatriate;
❏ Maintain a presence, sometimes a continu-
ous one, in the settlements, along routes of
return, at border crossing points and in the
transit and arrival centers;
❏ Accompany the returnees during the
journey;
❏ Monitor treatment of the returnees on
return;
❏ Mount those parts of the logistical opera-
tion not contracted out to operational
partners and monitor those that are.
Estimation of Numbers
45. An important element for planning is
the number of refugees likely to repatriate,
which will rarely be known accurately for a
variety of reasons. Nevertheless, a best esti-
mate will be required, and assumptions will
need to be made. Plans must be flexible,
taking into account the fact that a common
pattern is a slow start as refugees wait to see
how the initial movements go and how the
first repatriates are received.
46. Information should be obtained on:
i. The numbers of refugees intending to
repatriate. Estimates should be obtained
by random sampling of intentions, discus-
sions with refugee elders, leaders, women,
teachers and others in touch with the com-
munity and who are aware of likely inten-
tions. Assumptions can also be drawn from
observing current spontaneous return and
identifying obstacles being faced by the
returnees;
ii. The number of refugees for whom repatria-
tion is unlikely to be an option at this stage;
iii.Current location and numbers of refugees
in the country of asylum;
iv. Province and district of origin (intended
destination) in the country of origin. Deter-
mination of priority provinces and districts
of return will be based on the number of
potential returnees;
v. Lists of those with special needs.
47. Information for a repatriation operation,
including iii – v above, should be computer-
ized if possible using the FBARS (Field Based
Registration System) and consist of informa-
tion obtained during the initial registration
when the refugees first arrived and periodi-
cally updated thereafter (see chapter 11 on
registration and population estimation).
Likely Routes of Return
48. Identify principal routes of return from
the refugee camp to the destination in the
country of origin based on the likely methods
of return (roads, trains, airports, etc.). Identify
border crossing points (primary, secondary,
tertiary and minor foot paths). Consider which
routes are safer, and where there may be
dangers of mines.
49. A range of maps with varying degrees of
detail should be compiled. Data from FBARS
can be imported into maps, charts and graphs.
Use standard names and spelling for all loca-
tions since in may cases these may have
changed.
Mass Information Campaign
50. In addition to ensuring the refugees
have access to accurate information on condi-
tions in the country of origin, they should also
have direct access to information about the vol-
The underlying principle of cross border
coordination should be that voluntary repa-
triation operations have to be determined
by the conditions, absorption capacity and
preparedness in the country of origin.
279

untary repatriation operation itself. Posters,
leaflets, verbal presentations, radio and TV pro-
grammes, etc. in the refugees' language(s)
should be used to explain as thoroughly as pos-
sible the envisaged voluntary repatriation oper-
ation. A simple leaflet, setting out the formali-
ties to expect on arrival and arrangements
made, can do much to help the repatriates and
facilitate the reception process. It is important
that at each stage of this information cam-
paign care is taken to ensure it is as objective as
possible and that no false expectations are
raised. Do not hesitate to tell a refugee that the
answer to some questions about specific condi-
tions in the country of origin is not known.
Departure
51. Registration: Annex 1 contains a sample
registration form – the Voluntary Repatriation
Form (VRF), including a declaration of intent
to repatriate. Where the Field Based Registra-
tion System (FBARS) for the computerization
of the registration data has been used, pre-
completed VRF forms can be produced. These
computer printed forms contain the required
data on those individuals and families wishing
to repatriate and the print-outs can be signed
by those concerned.
52. Deregistration: Upon departure to their
country of origin, repatriates have to be de-
registered from any camp or assistance related
records to ensure a proper scaling down and
adjustment of assistance in the country of
asylum.
53. Assembly prior to departure: Unless repa-
triation can take place directly from the settle-
ments, special arrangements will be required
for transit centers prior to the actual move, in-
cluding transport, accommodation, food and
basic health care as well as the orderly comple-
tion of the necessary administrative formali-
ties. In some circumstances, registration may
conveniently take place at the transit centers.
54. If repatriation takes place by means of
organized transport, computerized passenger
manifests, allocating passengers to convoys,
could be prepared using the FBARS repatria-
tion module. This will also allow the system to
deregister refugees who are repatriating and
exclude them from assistance in the camps.
On Route
Organized Repatriations
55. Identify sources of emergency assistance
already available along the routes of return
(medical facilities and potable water sources).
Where sufficient assistance is not already
available there will be a need to establish tem-
porary “way-stations” for rest and overnight
accommodation, food distribution (prepared
food or cooking facilities), first aid stations,
water points, etc. The form and degree of as-
sistance required will, in part, depend on the
means of transportation used by the returnees.
Other issues for consideration include availabil-
ity of fuel and facilities for vehicle repair.
56. A considerable UNHCR presence will be
required to monitor and verify the voluntary
nature of return, to assess needs and to coor-
dinate with offices in the country of origin
and asylum. They should provide up to date
information on numbers, needs and likely
routes to be used.
Mass Spontaneous Repatriations
57. Where UNHCR is providing assistance in
mass spontaneous repatriation, the same issues
need to be considered as above. However, pro-
viding the assistance to a large unorganized
mobile population will present challenges, and
there will be additional protection concerns.
The following steps should be taken:
General Arrangements
❏ Establish or strengthen positions on the
routes (way-stations) for the provision of
protection and assistance for the mobile
population. Factors determining location of
way-stations include, availability of water
and mode of transportation of the refu-
gees. If the refugees are traveling mainly
on foot, the distance between the way
stations en route should be closer to one
another than if the refugees are traveling
mainly in vehicles;
❏ Establish a visible UNHCR presence at way-
stations using flags, UNHCR stickers and
other visibility material. Ensure that UNHCR
staff can be clearly identified, particularly
those in mobile teams;
❏ Designate which UNHCR office will have re-
sponsibility for which sections of the route;
❏ Make arrangements to support UNHCR
staff living temporarily at way-stations by
providing tents or other accommodation,
drinking water, cooked meals, etc.;
It should also be made clear to the refugees
that on return he or she is outside the scope
of UNHCR's protection responsibilities and
once more subject to national laws.
280

281
❏ Establish mobile assistance along the
routes, between way-stations;
❏ Install fax, PACTOR or other means of writ-
ten telecommunication at UNHCR tempo-
rary offices along the route;
❏ Equip all UNHCR vehicles with communica-
tion equipment;
❏ Arrange for a common radio channel
through which all organizations involved
can communicate;
❏ Put one experienced radio operator and/or
technician in charge of coordinating the
telecommunications along the whole route;
❏ Have debriefing meetings in the evening
and allocate tasks for the following day;
❏ Introduce a single common numbering sys-
tem for all vehicles;
❏ Communicate the daily movement plan
through staff meetings, bulletin boards and
daily sitreps;
❏ Provide information to the refugees on
the location of way stations, etc. through
the placement of signs along the route in
languages that the refugees understand,
through announcements on local radio sta-
tions and announcements using mega-
phones;
❏ Make preparations for reception in the
country of origin – at the border transit
centers, and in likely districts of return, e.g.
prepare the local population, as well as
local government, and negotiate reception
and treatment at the border;
❏ Establish or strengthen a presence in the
country of origin to facilitate integration
and monitor treatment of returnees.
Protection and material assistance
❏ Set up temporary water tanks with tapstands
at way-stations (e.g. using bladder tanks);
❏ Fill water tanks by pumping from local
sources or tankering, ensuring adequate
treatment of the water;
❏ Preposition sufficient quantities of water
treatment chemicals at way-stations and/or
water collection points;
❏ Establish mobile water maintenance teams;
❏ Arrange for water tankering and refilling
of water tanks at night if necessary;
❏ Fit water tankers with distribution taps for
mobile water distribution;
❏ Provide refugees with small jerrycans
(2-5 liter) which can be carried easily;
❏ Demarcate defecation areas (or trench or
other latrines) at way-stations, designate
people to encourage and control their use;
❏ Identify teams for cleanup of defecation (or
latrine) areas, during their use and to re-
store the area following the end of the
population movement;
❏ Preposition lime for cleanup of defecation
areas;
❏ Reinforce existing hospitals and health cen-
ters which are on the routes with staff and
supplies. Establish health facilities at way-
stations and mobile health teams in be-
tween the way-stations. Ensure that there
are adequate supplies of Oral Rehydration
Salts with health centers and mobile health
teams;
❏ Try to prevent refugees concentrating in one
area to avoid transmission of epidemics;
❏ Preposition high energy biscuits or other
convenient food (preferably types requir-
ing little or no cooking) and distribute
them at way stations;
❏ Position staff with responsibility for unac-
companied minors at all way stations;
❏ Establish mobile teams to identify and col-
lect unaccompanied minors;
❏ Ensure that staff responsible for the care of
unaccompanied minors are highly visible;
❏ Clearly define which types of people are
to be considered “vulnerable” for the pur-
poses of the population movement and
ensure that all the organizations involved
are using the same criteria for identifica-
tion and care;
❏ Arrange separate transport to collect vul-
nerable persons, and their families.
Travel Formalities
58. Immigration formalities: Every effort
must be made to avoid the need for individual
or family clearance to repatriate by the coun-
try of origin before movement. Not only
would this create major practical problems
and delays, it would also be contrary to the
spirit of any properly comprehensive general
amnesty. If individual travel documentation is
required at all, the registration form should
suffice.

59. Customs formalities: Customs formalities
are generally waived or simplified in repatria-
tion operations but this should be checked
well in advance. Special arrangements may be
needed where the refugees wish to repatriate
with personal possessions such as vehicles or
livestock.
60. Health formalities: Health requirements
(vaccination certificates, etc.) should not exceed
those required for normal travelers. Extra vacci-
nations, e.g. cholera, typhoid, are sometimes
requested on the grounds that without them
the refugees would pose special health haz-
ards. Where vaccinations are required, WHO’s
advice should be sought and if necessary they
can be conveniently recorded on the registra-
tion form if the refugees are not already in pos-
session of individual vaccination cards.
On Arrival in Country of Origin
61. The principle of return in safety and dig-
nity does not cease to apply once the return
movement is completed, but applies and
should be monitored until such time as the
situation in the country of origin can be
considered stable, national protection is again
available and the returnees are reintegrated
into their community.
Registration on arrival
62. In certain situations, in particular in an
emergency repatriation, it may be the case
that no repatriation registration was under-
taken in the country of asylum. In this case a
system should be set up to register the re-
turnee population to facilitate UNHCR access
to all returnees in the different areas of re-
turn. In some circumstances, a returnee card
may be appropriate.
Monitoring and UNHCR presence
63. A UNHCR presence is vital for returnee
monitoring. Presence by other appropriate or-
ganizations, and liaison with them, is also im-
portant. The purpose of monitoring is to as-
sess whether national protection has been
effectively restored and extended to all re-
turnees. The basic principle is non-discrimina-
tion – that returnees are treated the same as
the resident population and are not targeted
or discriminated against in any way. Monitor-
ing should cover general conditions (human
rights violations, and security, food security,
access to basic facilities and property, freedom
of movement, honouring of any guarantees),
as well as random individual monitoring.
Reception by resident population
64. Where the return is spontaneous there
may be less time to make preparations in the
country of origin. Steps should be taken as soon
as possible to prepare the resident local popula-
tion for the arrival of the returnees to promote
acceptance and integration if necessary.
Material Assistance
65. Material assistance and protection are in-
terlinked and should be usually reinforcing.
The provision of material assistance to re-
turnees enhances the possibilities to monitor
this population and is important in making
return a lasting solution. Where assistance is
given without discrimination on a community
basis it can also help with acceptance of the
returnees and integration. The question of the
nature and degree of assistance programmes
in the country of origin, as well as the length
of time UNHCR should remain involved in the
country of origin, are covered in more detail
in the references listed below.
Access to land and property
66. Property is a key resource for returning
refugees – either in terms of access to accom-
modation and return to one’s home, or as a
means of livelihood. Resolving this can be very
complex, but must be addressed if the repatri-
ation is to be successful and durable. UNHCR
can play a role through negotiating with the
authorities to protect the legitimate rights of
returnees.
Landmines
(Please refer to chapter 23 on staff safety for
safety advice on mines.)
67. The presence of landmines on main
routes of return and in returnee settlement
areas poses tremendous danger for repatriat-
ing refugees and is therefore a major protec-
tion concern to UNHCR.
68. Within the UN system, issues relating to
mine clearance are primarily the responsibility
of the department of Peace Keeping Opera-
tions (DPKO). Where necessary UNHCR may
help fund minefield surveys and demarcation,
but involvement in actual mine clearance is
The need for return “in safety and dignity”
means that UNHCR cannot promote the vol-
untary repatriation of refugees in patently
dangerous situations with the risk of injury
or death.
282

283
exceptional and requires approval from Head-
quarters. The focus is therefore on less costly
measures that lead to immediate risk reduc-
tion for the refugees like mine awareness
campaigns. The danger of mines should be
considered from the earliest stages of plan-
ning a repatriation.
69. The following activities should be consid-
ered:
Identification of return routes and potentially
dangerous areas of return and landmine
survey:
UNHCR should obtain reliable information on
areas seriously affected by the presence of
landmines and discourage refugees from
traveling to or through such areas. While a
landmine survey is a national responsibility,
UNHCR may also be able to contribute infor-
mation obtained through its presence in the
country of origin as well as through interviews
with refugees in the country of asylum. DPKO
have a database on mines which includes
country specific information on estimated
numbers and types, and progress in clearance.
Repatriation method: The presence of mines
may have an impact on the proposed repatria-
tion method – for example it may be necessary
to encourage refugees to repatriate by means
of UNHCR organized transport rather than re-
turning spontaneously.
Mine awareness campaign: If landmines are a
factor, then mine awareness campaign should
be part of the mass information campaign
prior to departure in the country of asylum,
and continue in the country of origin. Ensure
that the campaign reaches all sectors of the
population – both men and women should be
involved with the planning and training activi-
ties of the awareness campaign. The cam-
paign must be sensitive to levels of literacy,
roles in society, and culture. It should cover:
existence, appearance and danger of land-
mines, how to avoid injury, safe rescue proce-
dures, and recognizing warning signs.
Demarcation (marking mined areas) and mine
clearance. UNHCR should ensure that returnee
areas and routes of return are included as pri-
orities in national demining and demarcation
plans. Returnees and local population must be
taught about the demarcation signs used.
Key References
Registration – A Practical Guide for Field Staff,
UNHCR Geneva, May, 1994.
Voluntary Repatriation: International Protection,
UNHCR, 1996.
Voluntary Repatriation. Training Module. 2nd
Edi-
tion, UNHCR, Geneva, 1993.

285
An example of the type of form that might be used for a large-scale repatriation is given below.
Where FBARS is used, it produces a pre-completed form with information taken during registration,
which will then only need the signature. This form can be modified to suit the requirements of the
operation.
Notes for those drawing up the form
1. Agree the information required with the authorities. All of the items in the example below may
not be necessary.
2. Agree who needs to complete a separate form. The example is designed to be completed by
each person over 18 years old and unaccompanied children, but it may be sufficient to have the
head of the family group complete one form for all accompanying dependents.
3. Agree on the number of copies and language(s): normally original plus three copies with the
following distribution: original – authorities; UNHCR in country of asylum; copy 1 – applicant; copies
2 and 3 – for travel and arrival formalities.
4. If at all possible, print the forms in sets on 'pre-carboned' paper.
5. Draw up simple completion instructions.
Annex 1 – Sample Voluntary Repatriation Form

286
Linked Cases:
Family Name First Name Sex Y O B Place of Birth Relationship
PRA
Family/Group No:
Intended Departure Date:
Intended Destination:
District Admin Post Location
Reception Center:
I, the undersigned principle applicant, declare that I (and my dependents) after due consideration wish
to be repatriated to ___________________________________
Applicant: Date: Witness:
UNHCR
Voluntary Repatriation Form

Below are some advantages and disadvantages of the common means of transport. Whichever form
of transport is used, the plan should also take into consideration:
1. Food, accommodation and minimum emergency health care during the journey. Where
distances are short, it is recommended that only material assistance needed for the duration of the
journey, plus, if essential, for the first few days after arrival, be distributed prior to departure. This
will help reduce any incentive to "repatriate" several times;
2. Capacity to move all reasonable private possessions of the refugees, if at all possible at the same
time as their owners. Remember that what refugees carry with them on return will be used to
ensure more successful reinstallation and move more quickly towards self-sufficiency (i.e., roofing
material, livestock, etc.);
3. Appropriate security and the maintenance of public order during all stages of the journey;
4. Arrangements for the safe transfer of the required documentation, passenger lists, registration
forms, etc., and for keeping statistical records of the progress of the operation;
5. Escort or monitoring of the actual repatriation by or on behalf of UNHCR. At least for the first
movements, a UNHCR staff member should accompany the returnees. Ensure voluntariness even
during the movement stage.
287
Annex 2 – Types of Transport

Notes for truck and bus
1. Assuming both bus and truck are available, the deciding factor may well be journey distance. If
road conditions allow, a bus is usually preferred for longer journeys. Check with the refugees if a
truck is acceptable, consider how small children would fare, what passengers would hold on to and
how luggage will be secured. Some form of sun shade or other protection may be necessary.
2. For both truck and bus, the following facilities will be needed:
– vehicle fuel;
– food and water for repatriates during journey;
– emergency health care;
– breakdown or recovery service;
– vehicle insurance for the country of destination.
3. For any movement by road, try to avoid having to change vehicles at the frontier. While it is
generally easier to use vehicles from the country of asylum, consider if having those from the coun-
try of origin coming to fetch repatriates has advantages. Ensure that drivers do not work excessive
hours and that they have immigration and other clearances through to the destination.
4. It may be difficult to keep trucks together in tightly grouped convoys, and this is often impracti-
cable on dusty roads in any event. However, there must be one person clearly identified as responsi-
ble for each group of vehicles. Seek local advice on how to marshal and control the vehicles. Pre-
arranged stopping points where all vehicles regroup, with the person in charge in the last vehicle is
one solution. Make sure all drivers are aware of breakdown or accident procedures.
288
(i) Spontaneous and self-organized
(ii) No logistical requirements necessary
(i) Can be used on most roads
(ii) Usually available
(iii) Plenty of space for luggage
(i) Greater passenger capacity in safety
(ii) Faster than truck if roads allow
(iii) More comfortable
(i) Returnees can take little household effects
(ii) Requires first aid medical stations, provision of
potable water and food along route
(iii) Special assistance required for vulnerable
groups (children, elderly, disabled)
(iv) Increased security risk. Risk of separation of
families
(i) Open to elements
(ii) Danger to passengers
(iii) Uncomfortable
(i) Limited luggage space except on roof
(ii) Slower unloading and loading (e.g. at border
and road checks
ADVANTAGES DISADVANTAGES
FOOT
TRUCK
BUS

289
AIR
Notes
1. Movement by rail rather than road may be the better solution where large numbers are repatri-
ating to the same initial destination.
2. To avoid delays at the border, try and organize immigration, customs and health formalities ei-
ther only at the final destination or by embarking officials who complete them during the journey.
Notes
1. For any large scale repatriation, existing commercial flights will be insufficient (and more expen-
sive than chartering). In general, the most economical aircraft on a medium or long haul is a full
wide-bodied jet (i.e. jumbo or airbus type).
2. UNHCR has considerable experience in chartering aircraft for repatriation operations. The
agreement is likely to be concluded from Geneva and advice should be sought from Headquarters
(the Regional Bureau and Supply and Transport Section) regarding procedures and standards of
safety.
3. In addition to practical matters such as runway length, consider requesting from the govern-
ments concerned:
– concession to use duty free fuel (check fuel availability);
– waivers of in-flight route charges, landing and parking fees;
– payment only for actual cost of handling charges rather than the fixed commercial fees.
(i) Greater passenger and luggage capacity
(ii) Assembly and reception facilities already likely
to exist
(iii) Comfortable
(i) Secondary transport to or from port required
(ii) Slow and costly
(iii) Sea sickness
Advantages Disadvantages
BOAT
(i) Easy overall control including border crossing
(ii) Plenty of luggage space
(iii) Can be made self-sufficient (fuel, food, water,
etc.) over longer distances
(i) Much less flexible: secondary transport re-
quired to and from railhead
(ii) Often slower than road
(i) Swift, convenient and easily controlled
(ii) Assembly and reception facilities are likely to
exist already
(iii) Optimum means for long distances and
especially for the sick, disabled and otherwise
vulnerable
(i) High cost
(ii) Secondary transport required to and from air-
port
(iii) Limited luggage capacity
TRAIN

20
Administration, Staffing and Finance
290

Emergency Staffing 4-36 292-296
Introduction
Recruitment
Management
Personnel Administration
Staff Visibility
Staff Accommodation
Budget and Finance 37-51 296-298
Authority to Incur Expenditure
Transfer of Funds
Bank Accounts
Exchange Rates
Accounting Procedures
Non-Expendable Property and Office Supplies 52-61 298-299
Non-Expendable Property
Asset Management System
Office Supplies
Office Premises 62-67 299
Official Transport 68-75 299-300
Vehicles
Light Aircraft
Office Organization 76-80 300-301
Filing and Documentation
Communications
Key References 301
Annexes
Annex 1: Preface and extract from “The Checklist for the Emergency Administrator” 302-306
Annex 2: Suggested Field Filing System 307-308
Administration,Staffing
andFinance
20
291

Introduction
1. The purpose of this chapter is to provide
general guidance on UNHCR's basic adminis-
trative procedures and actions in an emer-
gency. Nothing in this chapter should be read
as altering any existing rules, regulations and
instructions, in particular the UNHCR Manual.
The latest edition of The Checklist for the
Emergency Administrator (hereinafter referred
to as the Checklist) is an essential reference for
administration in emergencies. The Checklist
comes in three parts:
i. The actual checklist (a few pages). This is
reproduced as Annex 1;
ii. Annexes to the checklist (in a large folder)
which are primarily samples of the most fre-
quently used administrative forms and ex-
tracts from the UNHCR Manual;
iii.A computer diskette containing many of
the forms.
Throughout this chapter references are given
to the relevant item in the Checklist.
2. The chapter considers particularly the
opening of a new office in an emergency, but
may also be helpful when expanding an exist-
ing office or establishing Sub or Field Offices.
3. The status of an established UNHCR
office is governed by an agreement between
the host government and UNHCR, called
a Cooperation Agreement, also referred to
as a “Branch Office Agreement” or an “Accord
de Siège”. (See Checklist section on Premises).
Until such an agreement is concluded, UNHCR
will be covered by UNDP’s agreement with the
host government. In addition, the Convention
on the Privileges and Immunities of the United
Nations, 1946 1
, is applicable to UNHCR and
covers such matters as the inviolability of
United Nations premises, the right to operate
foreign currency accounts, exemption from di-
rect taxes and customs duties on articles for
official use, and facilities and immunities for
communications. Specific considerations in re-
spect of the emergency operation, for exam-
ple regarding the handling of relief supplies,
would be set out in the exchange of commu-
nications concerning the government's re-
quest for material assistance and in the project
agreement (see chapter 8 on implementing
arrangements).
Emergency Staffing
(See Checklist section on Personnel, Staff
Conditions & Security). See also the Staff Rules
and the Staff Administration and Manage-
ment Manual, also the InSite database avail-
able on CDRom.
Introduction
4. As soon as possible the Head of Office
should communicate to Headquarters the pro-
jected staff requirements at both general ser-
vice and professional levels with the necessary
detail to enable Headquarters to review these
in accordance with established personnel pro-
cedures and to approve the staffing table for
the emergency. Emergency staffing resources
should be used for the initial emergency pe-
riod only. In the initial period, prior to the cre-
ation of posts, national staff could be recruited
and paid for under Temporary Assistance.
5. There should be no delay in committing
necessary personnel. However, solely adding
personnel will not meet the organizational
needs of an emergency: the operations plan
and definition of responsibilities must deter-
mine personnel needs, not vice versa. Experi-
ence shows that for a given operation, smaller
teams with clear allocation of responsibilities
are usually more successful than larger teams
whose members have less clearly defined roles.
Staffing must be flexible. Numbers are likely
to vary over time.
Recruitment
6. It is important that the different advan-
tages of national (also referred to as local) and
international staff are understood, and that
these different strengths are properly incorpo-
rated into a staffing plan. National staff mem-
bers understand the local situation and are
sensitive to issues that often escape the notice
of the international staff member. They often
enjoy a wide range of contacts that enable
them to "get things done".
7. Very significantly, national staff may
speak the refugees' language. Correspond-
ingly, international staff members bring to the
operation an impartiality and an embodiment
of the international character of UNHCR,
which is essential. They will also have expe-
rience from elsewhere to contribute to the
management of the emergency.
Additional staff, who are unclear as to their
role, will add to the management burden in
an emergency
292
1
Contained in UNHCR, Refworld CD-ROM.

8. Headquarters is responsible for interna-
tional staff identification, recruitment and
deployment. The need for international staff
will depend on the scale of the emergency
and implementing arrangements.
9. The following table shows staff functions
which may be needed in a large emergency.
10. The need for at least the following inter-
national staff (comprising an emergency team)
should therefore be considered in a large scale
emergency.
❏ Emergency Team Leader (with one of the
senior officers also possibly acting as Deputy
to Team Leader);
❏ International Secretary or Assistant for the
Team Leader;
❏ Senior Protection Officer;
❏ Protection Officer(s);
❏ Senior Programme Officer;
❏ Programme Officer(s);
❏ Sector Coordinators, e.g. Community Ser-
vices, Water, Health, Nutrition;
❏ Field Officers deployed at the refugee sites;
❏ Senior Administrative Officer;
❏ Finance Officer/Personnel Officer;
❏ Staff Safety Officer;
❏ Public Information Officer;
❏ Logistics Officer;
❏ Telecoms Officer.
11. The emergency team could be composed
of staff deployed from emergency standby
arrangements only, or a mix of the latter
plus UNHCR staff already posted to the area.
Emergency standby and staffing arrangements
include an internal roster of UNHCR staff and
emergency standby arrangements with other
organizations. Details of these arrangements
can be found in the Catalogue of Emergency
Response Resources, Appendix 1.
12. For all staff, prior experience of an emer-
gency operation is of course, a great advan-
tage.
13. In a country where a major emergency is
added to a previous small-scale programme it
may be necessary to replace the existing Head
of Office with a more experienced Head of
Office at least for the duration of the emer-
gency.
14. Administrative staff are another priority.
An experienced administrative assistant will be
an essential member of the team if a new
office is being opened, and in large emergen-
cies experienced finance and personnel officers
are likely to be necessary. Without persons
with these skills, other staff will have to devote
a disproportionate amount of time to UNHCR
internal administration. National administra-
tive staff must be identified and trained, but
this in itself requires experienced supervision.
15. Each refugee emergency will require a
certain number of specialist skills even at
the assessment and initial phases of the
emergency. Where these are not available
in-country, the assistance of Headquarters for
recruitment of specialists through standby
arrangements should be sought without de-
lay. See Appendix 1, Catalogue of Emergency
Response Resources for more details of these
standby arrangements.
16. Informal volunteers, both nationals and
members of the diplomatic and expatriate
The overriding staffing priority is to fill key
managerial posts with experienced UNHCR
staff of the right calibre.
UNHCR has developed a number of standby
arrangements whereby suitable interna-
tional staff can be deployed rapidly to an
emergency operation.
andFinance
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Type of function
Overall management and leadership
Management of the administration in large
emergencies
Core UNHCR functions in an Emergency Team:
Field, Protection, Programme
Administrative and finance functions for an
Emergency Team, to set up new offices and
train staff
Community services functions
Supply and transport functions
Technical functions
– technical coordinators (e.g. for health, water,
nutrition) and
– other technical support e.g. health assess-
ment, epidemic preparedness and response,
health monitoring systems, engineering
(physical planning, water, sanitation, roads)
Support functions, e.g. base camp manage-
ment, telecommunications and staff safety

communities may come forward to help. The
value of these outside volunteers will vary
considerably with the situation. It will be im-
portant to assess the skills of the volunteers,
the time they can devote and the availability
of management personnel needed to coordi-
nate and support them.
Reporting lines
17. In situations where an emergency team
is deployed to an area of the country where
there is no UNHCR office, the emergency Team
Leader will normally report to the UNHCR
Representative in that country or the Regional
Representative or Special Envoy as appropriate
in the individual circumstances.
18. When an emergency team is deployed
into an area where a UNHCR office already
exists and has responsibility for the operation,
then the emergency team should integrate
into the staffing structure of the existing
office. The decision as to who should head
the operation, the existing Head of Office or
the Emergency Team Leader, will depend on
the circumstances and the relative experience
and seniority of the individuals. The decision
as to who will head the operation must be
clearly communicated to all staff at the outset
to avoid any ambiguity in responsibilities and
reporting lines.
Management
19. Sound personnel management, supervi-
sion and leadership are very important to the
success of an emergency operation, but can
easily be overlooked. The initial motivation of
those involved is a major asset, but for persons
at levels that do not allow an overview of the
operation, this can be replaced by disappoint-
ment and frustration if supervisors are too
busy to plan, organize, direct, control and
continue to motivate their staff.
20.
Job descriptions are the most common man-
agement tool for defining individual res-
ponsibilities, even if the imperatives of an
emergency mean their frequent revision. They
are important for UNHCR staff, and even more
so for seconded staff (such as United Nations
Volunteers – UNVs, consultants and staff
deployed through the emergency standby
arrangements), and informal volunteers. Re-
sponsibility should be delegated to the lowest
possible level, and with it must go the neces-
sary authority. Responsibility without author-
ity is useless.
21. Staff meetings should be convened regu-
larly from the start. Team welfare will have an
important bearing on the success of the emer-
gency operation.
22. Very long hours will often be necessary,
but supervisors must ensure that staff have
time off, away from the refugee site, and do
not get so overtired that their efficiency and
the professionalism of their approach suffers.
23. All field staff have a particular responsi-
bility to safeguard their own health, but also
have a role to play in ensuring that their
colleagues remain in good mental and physi-
cal health (see chapter 22 on coping with
stress). Early corrective action can avert the
need to hospitalize or evacuate key staff.
24. In an emergency there may be many
occasions when staff see clearly that by de-
voting time to helping individual refugees
or families in distress they could alleviate
suffering directly. To seek to do so is very
understandable but it can lead to a personal
emotional involvement at the expense of the
staff member's wider responsibilities towards
the refugees as a whole, and to resentment
among other refugees. Direct responsibility
for individual care is usually best assured by
the refugee community. For all staff, compas-
sion must be tempered by a professional
approach. Guidance by supervisors is often
needed on this point.
25. Particular attention must be paid to
proper supervision and encouragement of
newly recruited national staff. Often the Head
of Office and other international staff are
extremely busy, out at meetings or in the field,
and the other staff, who may know little
about UNHCR and less about the operation,
lack guidance and a sense of involvement.
Some of the general information in the emer-
gency office kit may be useful for briefing
Everyone must be made to feel part of
the UNHCR team. This includes consultants,
seconded staff, and volunteers.
Responsibilities, roles and tasks must be
clearly defined and understood.
Lack of proper supervisory support may
lead to the volunteer taxing already over-
extended staff as much as, or more than,
the value added.
294

newly recruited national staff. In all cases
the new staff should receive a briefing from
their direct supervisor covering, at a minimum,
general information on the operation and the
role of the new staff member.
Personnel Administration
26. UNDP may be able to help in determin-
ing conditions of service and even in identify-
ing national field staff.
27. Careful attention must be paid to the
administration of out-posted field staff. A
convenient way of administering Field Offi-
cers, at least initially, is to ensure that the
Travel Authorization (PT8) issued authorizing
the mission to the country of operation also
covers internal travel and DSA. If the latter is
not covered, an addendum to the original PT8
is issued. Normally in emergency situations,
and to avoid staff carrying too much cash, a
DSA advance is given on a monthly basis. This
advance is charged to the suspense account
code as indicated on the UNHCR account
codes listing (VF 324) and recorded on the
reverse side of the original PT8. Upon comple-
tion of the mission, the office settling the
travel claim, must ensure that the travel
advances are deducted from the entitlements.
28. Particular care must also be taken to en-
sure the proper administration of out-posted
national staff, for example, Field Officers' driv-
ers. It should be noted here that while Heads
of Office can authorize out-posted staff to
drive official vehicles on official travel, as in an
emergency this is likely to be necessary, every
effort should be made to provide Field Offi-
cers’ with drivers from the start. They can be of
great help to Field Officers in a variety of ways.
29. All out-posted national staff must have
contracts, understand their terms of employ-
ment and benefits, including the cost and
benefits of the UN health insurance scheme,
receive their salary regularly, work reasonable
hours and take leave due.
Obvious as these requirements are, they can
be difficult to meet in an emergency. There
may be important extra demands on UNHCR
drivers, both beyond simple driving and also
as a result of their working for itinerant Field
Officers and thus spending considerable time
away from home. These factors must be taken
into account.
Staff Visibility
30. A means for visual identification of
UNHCR staff may be necessary, particularly
outside the capital. Visibility materials, avail-
able from Headquarters, include flags, stickers
(including magnetic stickers), vests, armbands,
T-shirts and caps (see the Catalogue of Emer-
gency Response Resources Appendix 1).
31. Consideration should also be given to
adopting a UNHCR identity card with a visible
photograph that can be worn as a pocket
badge. Arrangements should be made as soon
as possible for UNHCR staff to receive diplo-
matic identity cards issued by the government.
Pending that, an official attestation in the
local language could probably be quickly
obtained for each out-posted Field Officer
from UNHCR’s government counterpart and
might be very useful.
Staff Accommodation
32. At the start of an emergency, interna-
tional staff will be on mission status and will
generally be accommodated in hotels. Should
the daily subsistence allowance (DSA) not cover
the basic cost of adequate hotel accommoda-
tion, Headquarters should be informed at once
and all hotel receipts retained. Conversely, DSA
is reduced if official accommodation and/or
meals are provided. If it is clear that special
arrangements will be required for personal
accommodation for staff who are assigned to
that duty station, Headquarters should be
informed, with details of local UN practice.
33. In extreme hardship areas, where there is
no suitable staff or office accommodation, a
standard staff and office accommodation
package is available. This consists of prefabri-
cated units which are stockpiled and which
can be airlifted to the operation. Further
information is provided in the Catalogue of
Emergency Response Resources (Appendix 1).
34. Standard travel kits and field kits are also
available from the emergency stockpile, and
details of their contents are provided in the Cat-
alogue of Emergency Response Resources
(Appendix 1). The kits have been developed to
provide staff with some basic personal items
likely to be of use in the first days at such places,
pending more appropriate local arrangements.
The kits will normally only be issued to staff
proceeding to isolated locations from or via
Geneva, and when it is clear that there may not
be time to obtain what is actually needed on
arrival in the country of operation. If UNHCR is
All staff should have job descriptions and
understand them.
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already represented in that country, the Field
Office should have a good idea of conditions to
be expected and thus of what specific personal
equipment may be needed, and this is probably
best purchased locally.
35. Responsibility for the provision of the
necessary personal items rests with staff mem-
bers. Even when issued with kits, staff should
check carefully what other items may be re-
quired; it is unlikely that a standard kit will
meet all needs. Staff receiving kits will be
required to account for them at the end of
their mission, and will be expected to at least
return the non-consumable items.
36. In difficult conditions it may be necessary
to hire a base camp manager who will be re-
sponsible for organizing living arrangements
for UNHCR staff. A description of the tasks of a
base camp manager is provided in the Checklist.
Budget and Finance
(see Checklist section on Finance, Equipment &
Supplies).
Authority to Incur Expenditure
37 Currently UNHCR classifies expenditure
into two types:
i. Project expenditure;
ii. Administrative support expenditure.
This classification of expenditure may change
in the future.
38. Authority to enter into obligations for
project expenditure is given by a letter of in-
struction (LOI). Further details can be found in
chapter 8 on implementing arrangements.
39. Authority to enter into obligations for
administrative support expenditure is given
by an Administrative Budget and Obligation
Document (ABOD). This is issued by Headquar-
ters and is addressed to Heads of Offices. It
covers all non-staff costs including temporary
assistance and overtime.
40. Authority for additional administrative
support expenditure in an emergency is given
to an existing Field Office by amending the
existing ABOD. When an emergency occurs in
a country where UNHCR is not already repre-
sented, an initial ABOD will be issued immedi-
ately. This can then be amended when more
details of administrative requirements are
known. Control of expenditure against funds
allocated is by an Administrative Budget
Control Sheet (ABCS) generated from the
computerized accounting system.
Transfer of Funds
41. It is essential to have funds immediately
available. Funds will normally be made avail-
able by bank transfer. However, such transfers,
especially to out-posted Field Office bank
accounts, sometimes suffer undue delays be-
cause of complicated banking channels. It is
very important to select a local bank with a
direct international correspondent relation-
ship, if possible with Citibank N.A. New York
or the UBS Bank in Switzerland. Further in-
formation can be provided by the Treasury
Section at Headquarters.
42. At the start of an emergency it may be
possible to hand carry a banker’s cheque from
Geneva to be credited directly to the Field
Office bank account. If this is done, proper
precautions must of course be taken to ensure
the security of the cheque.
43. In very extreme cases, when no banking
services are available, cash may be acquired
locally (e.g. through local companies and
traders) upon specific authorization from
Treasury. Funds would be transferred to an
account indicated by the trader after receipt
of the cash by UNHCR. Cash may also be pro-
vided to Field Offices through professional
courier services. Information about cash trans-
fers, past, present and future, must be treated
with absolute discretion.
44. Subsequently funds will be transferred
by Treasury upon cash replenishment requests
in the standard format shown in the box
below. Care should be exercised that funds are
called forward as close as possible to the date
of their utilization to avoid unnecessary high
bank balances over prolonged periods.
296
To: UNHCR Treasury (HQTY00)
From: Requesting Officer/Field Office Location
Subject: Cash Replenishment Request
Please effect an immediate transfer of funds
based on the following information:
Balances on hand (all bank accounts and petty
cash) at (dd/mm/yy): (provide details of amounts
and currencies)
Total disbursement needs for the next x (maxi-
mum 4) weeks: (provide details of administrative
and programme needs, amounts and currencies)
Replenishment amount requested: (indicate
amount and currency)
Complete bank name and address, including
UNHCR bank account number, and the Field
Office’s accounting system receiving bank code.

45. Disbursements for both administrative
and project expenses are made in the Field
either from a local UNHCR bank account or,
pending the opening of such an account,
through UNDP. In the latter case, UNHCR
Headquarters will arrange with UNDP Head-
quarters for the local UNDP office to receive
the necessary authority to incur expenditure
on behalf of UNHCR. Settlement with UNDP
will normally take place through the common
Inter-Office Voucher (IOV) system for amounts
of less than US$10,000 or through a special
transfer of funds to UNDP New York for larger
sums. As a rule, disbursements exceeding the
equivalent of US$100 should be made by
cheque; whenever local circumstances require
regular cash payments in excess of this limit,
Headquarters’ approval must be obtained.
Bank Accounts
46. All local UNHCR bank accounts are
opened by Treasury upon recommendation
from the Field Office. The choice of a bank will
be determined by its reputation, ease of
access, services offered and charges. Other
UN agencies, diplomatic missions and NGOs
should be consulted. The following informa-
tion is required:
i. Full name of the bank;
ii. Address, phone, telex and fax numbers;
iii. Type and currency of account;
iv. Bank’s correspondent bank in New York or
Switzerland;
v. Maximum amount of any one cheque;
vi. Suggested panel of bank signatories;
vii. Amount of initial transfer.
47. Treasury will designate the authorized
bank signatories. Two joint signatories are
normally required to operate UNHCR bank
accounts. In exceptional circumstances, signa-
ture by one Officer may be authorized.
Cheques must bear UNHCR in words, be
consecutively numbered, verified on receipt,
and kept in a safe by a staff member desig-
nated by the Head of Office. Cheques should
always bear the name of the payee and
should be crossed unless there is an overriding
reason why this is not practicable. Under
no circumstances should a bank signatory pre-
sign either a blank cheque or one which is
only partially completed.
48. Field Offices will normally maintain one
non-resident local currency bank account;
circumstances may however also require the
opening of a non-resident US dollar account
and perhaps even a resident local currency
account. Where problems of exchange control
regulations are encountered, the Treasury at
Headquarters should be informed immedi-
ately. Field Offices should ensure that the
most favourable conditions are obtained for
the transfer and conversion of UNHCR funds.
Exchange Rates
49. If there is a significant discrepancy, i.e.
more than 3%, between the actual market
rate and the prevailing UN rate of exchange, a
request for a revision of the latter should be
made. This request should be coordinated
with UNDP and other UN organizations locally
and addressed to UNDP New York. The
communication should contain a summary of
the fluctuations over the previous 60 days. If
necessary, UNHCR Headquarters should be
requested to intervene with UNDP New York.
Accounting Procedures
50. UNHCR accounting procedures may
change. However, currently, whenever a Field
Office operates its own bank account(s), it
must report to Headquarters monthly on all
transactions for each account. The procedure
is the same for both administrative and
project expenditure. Most importantly, a
properly supported payment voucher must be
completed and immediately entered into the
electronic accounting system. Where this
system has not yet been installed, a manual
payment voucher (F.10) should be completed
and immediately entered on a bank journal
(HCR/ADM/800). It is essential that the voucher
quotes the authority for payment (LOI, ABOD,
PT8 (travel authorization). A “Mini Payment
Voucher” book (F.11), designed especially for
emergencies, may be used by out-posted Field
Officers. An official UNHCR receipt voucher
should be issued and entered on the bank
journal for any receipts other than replenish-
ments from Headquarters. Similarly, pay-
ments from petty cash have to be accounted
for in the petty cash journal (HCR/ADM/800).
It is imperative that all vouchers and journal
entries list the correct account code, as indi-
cated in the UNHCR account codes listing and
on the PT8, or the project symbol marked on
the LOI against which the transaction is to be
debited/credited.
Particular care must be taken to ensure
cheque book security.
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51.
Experience has shown that failure to do so will
not only delay the replenishment of the bank
account but will also result in far more work
than would originally have been required.
Non-Expendable Property and Office
Supplies
(see Checklist section on Finance, Equipment &
Supplies).
Non-expendable property
52. Authority to purchase office furniture
and equipment is given in the ABOD. Field
Offices may purchase locally or regionally if
the cost of the item is less than 15% above
that available through the Supply and Trans-
port Section at Headquarters2
.
53. The purchase of computer equipment,
vehicles, telecommunications equipment and
security equipment should be coordinated
with Headquarters in order to ensure con-
formity with the organization’s specifications.
Local purchase should be considered and if
the cost is within the 15% limit referred to
above, the Field Office should forward three
pro forma invoices, together with the item’s
specifications, to the Supply and Transport sec-
tion at Headquarters for approval.
Asset Management System
54. The asset management system is an
electronic system to track and manage all
non-consumable assets owned by UNHCR
(with a lifespan of over a year), regardless
of funding source or user (including for exam-
ple all vehicles, telecommunications and
computer equipment, furniture and office
equipment, buildings such as clinics, office,
hospitals, and water purification and con-
struction equipment). The system should
be installed into at least one computer at
the country office level. A decision should
be made at the beginning if the extent of
the operation requires that the system be
installed in other offices within the country.
The office must also have the system user
manuals, bar-code labels and data entry
forms (obtained from the Asset Management
Unit at Headquarters).
55. Whenever an asset is purchased, whether
locally, regionally, through Headquarters, or by
implementing partners with UNHCR funding,
it must be bar-coded and recorded in the asset
management system.
56. Where items are acquired from stock-
piles maintained at Headquarters, such as
computer and telecommunications equip-
ment, relevant data about the item will be
sent to the Field on diskette so that the office
can import the details into the asset manage-
ment system.
57. Where an asset is re-deployed to another
location, data about it should be sent on
diskette to the receiving office for importation
into the asset management system.
58. It is important that all assets are bar-
coded and recorded in the asset management
system from the beginning of the operation.
Failure to do so will result in “lost” assets and
in far more work than would originally have
been required.
59. Offices maintaining their own asset man-
agement database should regularly send their
databases to the country office for consoli-
dation.
The consolidated database should be sent to
Headquarters every three months.
Office Supplies
60. An emergency office kit (see Catalo-
gue of Emergency Response Resources, Ap-
pendix 1) can be used to supply a new office
with stationery and small office equipment.
The stockpiled kits weigh approximately
120 kg packed in two cardboard boxes. Each
kit is designed for an office with five interna-
tional staff and ten national staff.3
1. Office supplies, as well as printed
stationery and forms, can be purchased
locally, regionally, or if this is too expen-
sive, office supplies and printed forms
listed in the UN catalogue may be ordered
on a stationery request form (GEN-236/1)
directly from Headquarters. The emer-
gency kits are not intended for re-supply,
even in emergencies.
Whatever the pressures of the emergency,
accounts must be kept up-to-date and the
monthly closure done on time.
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2
Costs of items available through Headquarters are
quoted in UNHCR’s Catalogue of Most Frequently
Purchased Items, UNHCR, Geneva, (updated regularly)
and in IAPSO’s catalogue of Office Equipment, IAPSO
(updated regularly).
3
Further information is also contained in the Catalogue of
Emergency Response Resources (Appendix 1).

61. Orders for items not listed in the UN
catalogue4
and which are not locally available
should be requested from Headquarters, giv-
ing all necessary details and specifications.
Office Premises
(Checklist section on Premises)
62. The order of priority for obtaining of-
fices is:
i. Rent-free from the government;
ii. In common UN premises;
iii. Government-provided offices against reim-
bursement by UNHCR and
iv. Commercial rent.
63. Interim arrangements may be necessary,
but the early establishment of the UNHCR
presence in a convenient location will be of
obvious importance to the success of the oper-
ation.
64. Office space per person should not
exceed about 14m2
, but an approximate addi-
tion of 30% is needed to allow for a reception
area, interviewing room, meeting room, and
services area (filing, copier, etc.) as appropriate
to the scale of the operation.
65. Considerations in selecting office prem-
ises include:
❏ Location (distances from ministries, imple-
menting partners, bank, post office, air-
port, etc.);
❏ Security (for authorized access to individual
refugees and UNHCR staff, to prevent
unauthorized access, and for the physical
security of offices, files, etc.);
❏ Parking facilities;
❏ Utilities (electricity, water, heating, air-con-
ditioning, wires for telephone, toilets, sim-
ple kitchen facilities, storage room, etc.);
❏ Physical layout and orientation of the buil-
ding. Ensure that the building and grounds
are suitable for radio and satcom antennas
and that there is no interference from
neighbouring installations e.g. pylons;
❏ Provides for a large enough meeting
space for UNHCR to discharge its coordina-
tion responsibilities through coordination
meetings;
❏ Room for expansion; in emergencies the
numbers of staff can fluctuate considerably;
❏ The condition of the office.
66. The use of residential accommodation
(e.g. a villa) as an office may be an option.
67. Once office premises have been selected,
the government, diplomatic community, other
UN agencies and NGOs should be informed
accordingly, and the relevant information pro-
vided to neighbouring UNHCR offices and to
Headquarters.
Official Transport
(See Checklist section on Communications &
Transport. In addition, chapter 18 on supplies
and transport deals with all transport issues,
focusing on transport for operational needs).
Vehicles
68. It is essential for UNHCR staff to be
mobile. Action to ensure enough of the right
type of official vehicles will be a high priority.
Consult the Supply and Transport Section at
Headquarters regarding the purchase of vehi-
cles (see chapter 18 on supplies and transport
for more information about the purchase or
acquisition of vehicles). Once the vehicle is
sold or passes from UNHCR’s control (e.g. at
the end of a lease agreement), ensure that
any official UN or UNHCR logos and stickers
are removed. Magnetic stickers (available
from Headquarters) can be quickly attached
and removed from vehicles and re-used.
69. Requests to Headquarters for vehicle pur-
chase should give full details (make, type of
body, number of doors, long or short wheel-
base, left or right hand drive, petrol/diesel,
special options: sand tires, extra fuel tanks,
air-conditioning, heater, mine protection, anti-
theft device, etc.). The duty-free on-the-road
price and delivery time must be given if local
purchase is requested.
70. In many countries duty-free fuel may be
available for official UN vehicles. Details of
procedures should be obtained from the gov-
ernment and other UN organizations. Follow
them from the start; retroactive reimburse-
ment is often impossible.
71. Vehicle daily log sheets should be intro-
duced from the day the official vehicle
becomes operational and these should be
designed in such a way as to show the daily
mileage of each vehicle and the purpose of
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4
Office Supplies, Forms and Materials, UN, Geneva, 1990.

each trip. The daily log should also include
the names of the driver and of the passen-
ger(s). Mileage should be regularly checked
against the purchase of fuel for that vehicle.
72. It is important that vehicles are insured
and registered upon arrival. In respect of each
official vehicle assigned to a Field Office,
adequate insurance covering third party risks
should be arranged locally with a reputable
insurance company.
Light Aircraft
73. There may be situations when a light
aircraft is the only way to ensure satisfactory
communications between the various UNHCR
locations. The need may be temporary, for
example to expedite needs assessment and
the initial response, or longer-term when the
existing communications infrastructure does
not adequately cover the location of the
refugees and the journey by road is long and
uncertain. In some circumstances, security is
also a consideration.
74. Immediate action to provide the neces-
sary flights is essential. Initially, or where the
need is short-term, this is likely to be by com-
mercial charter unless the UN system already
has a light aircraft and spare capacity. If locally
based charter companies exist, seek impartial
local advice on their reliability, obtain as many
offers as possible and send these to Headquar-
ters with a recommendation. Include details of
passenger insurance coverage. This informa-
tion should be complemented by an indication
of the required weekly flight plan (e.g. per
week: 3 return flights capital/location X; 1 re-
turn flight capital/location Y; 1 round trip flight
capital/X/Y/capital), and the estimated cost for
the necessary flights (total or per month).
75. Where local charter is not possible or a
long-term need is foreseen, inform Headquar-
ters with as much detail of the requirement as
possible and ways it might be met (for exam-
ple, of charter companies from neighbouring
countries known to operate in the country of
operation). Some government disaster corps
and a number of NGOs operate light aircraft.
Some are specialized in this field like Aviation
Sans Frontieres (ASF), and the Missionary Avia-
tion Fellowship (MAF). If there is already such
an operation in the country their advice
should be sought.
Office Organization
(Checklist section on Filing & Documentation
and Communications & Transport).
Filing and Documentation
76. A simple office communication system
should be put in place immediately. This can
be implemented by, for example, pigeon holes
(ideally one for each staff-member and one
for each collaborating organization), white-
boards and notice-boards. This will help to
ease communication problems in the confus-
ing early days of an emergency.
77. A suitable filing system and registry
controls should be set up immediately on the
opening of a new office. Annex 2 gives some
guidance as to what might be required and
how filing could be organized.
78. A rubber stamp to show date of receipt,
file, action officer and remarks will be very
useful. The practice of putting a chronological
number on every outgoing communication is
strongly recommended and will be particu-
larly helpful in the confused early days. Every-
thing should have copies on the chronological
file in addition to a subject file.
79. As a precautionary measure, offices
should have a shredder to destroy any unwan-
ted documents or correspondence. In some
countries waste paper is sold and used in mar-
kets for packaging, so care should be taken
that discarded UNHCR documents are not
used in this manner.
Communications
80. Communications needs are discussed in
the communications chapter. A simple check-
list for a new office is given below; the order
will not necessarily be the priority.
❏ Identify the need for a telecommunications
network as soon as possible (radio, e-mail,
satellite, etc.);
❏ Obtain necessary permission from the au-
thorities to operate the equipment with
the assistance of the RTO or HQ Telecoms if
necessary;
❏ Obtain immediate access to a telephone
and fax and tell Headquarters (and neigh-
bouring UNHCR offices as appropriate) the
numbers and where they are located;
❏ Set up controls and registers for incoming
and outgoing communications from the
start;
❏ Establish a pouch system between the of-
fices within the country of operation and
Headquarters;
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❏ Consider communications needs in select-
ing office premises;
❏ Obtain a PO box number and tell Head-
quarters (and local authorities, etc.) the
number;
❏ Once the UNHCR telecommunications
network is installed, inform government,
UNHCR Headquarters, neighbouring UNHCR
offices, diplomatic corps and others, and
ensure correct listing in national telephone
directories, in the local UN and diplomatic
lists, and in the UNHCR directory.
Key References
Checklist for the Emergency Administrator, UNHCR
Geneva, 1998 (and updates).
Most Frequently Purchased Items, UNHCR, Geneva,
1998 (updated annually).
NGO Directory, UNHCR Geneva, 1996 (And sub-
sequent updates).
Office Equipment, IAPSO, Copenhagen, 1998.
The UNHCR Manual, Chapter 9, (Chapters on
financial regulations and rules, especially those
financial rules for voluntary funds that are admin-
istered by the High Commissioner). UNHCR
Geneva, 1995 (and updates).
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This checklist is intended as a practical tool for UNHCR staff when responding to emergencies and
assigned to duty stations where there is no established UNHCR presence, or where the existing
office needs to be strengthened as a result of new events. The complete Checklist consists of three
components listed below. Only the first part, the checklist is reproduced here. The complete check-
list in its three components can be obtained from the Emergency Preparedness and Response
Section at Headquarters.
The 3 components are:
1. The Checklist itself which lists most activities requiring consideration when establishing a Branch,
Sub or Field Office. Not all items will be relevant. The administrative officer together with the Head
of the Office will need to determine what action is to be taken. The list is not presented in an order
of priority and it is therefore important to set your own priorities depending on the local circum-
stances. The list does not cover administrative procedures and action required for the ongoing
needs of the office, but concentrates on those related specifically to the establishment of an office.
Each item is preceded by a box which you may tick off as action is taken.
2. Annexes, which are primarily extracts from existing documentation. These have been included
for ease of reference and are not substitutes for existing manuals and instructions of which the most
important is the UNHCR Manual to which frequent reference should be made. Not all relevant
UNHCR forms are included, as these are available in the Emergency Office Kit, or directly on request
from Headquarters.
3. A computer disc which contains the format for all forms or documents which are indicated by an
(*) in the Checklist. These forms or documents can be copied and amended to suit local needs. (It is
recommended that the original format is not amended directly.)
302
Annex 1 – CHECK-LIST FOR THE EMERGENCY ADMINISTRATOR
(Note: This checklist is regularly updated, the latest version should be consulted)
The importance of setting up effective administrative procedures from the outset
cannot be over-stressed. They will have important consequences
for the effective administration throughout the operation.

ESTABLISHING AN OFFICE CHECK-LIST FOR THE EMERGENCY ADMINISTRATOR
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ACTION
❏ 1. Establish a UNHCR Cooperation Agreement if not
already in place or consider its amendment if one
already exists but circumstances have changed
❏ 2. Identify need for Sub or Field Offices
❏ 3. Identify Office Premises, negotiate lease and seek
approval from Geneva
❏ 4. Consider the use of UNHCR stickers and UN flags,
posters and visibility material. Request more from HQ if
necessary
❏ 5. Consider "Base Camp" requirements and need for Base
camp manager, in situations where this is applicable
❏ 6. Determine immediate needs for and set up
communications: Telephone, E-Mail, fax, telex and/or
radio and pouch. Complete communications
questionnaire and send to HQs Attn.
Telecommunications Unit
❏ 7. Establish telecommunications procedures. Train staff
and advise procedures
❏ 8. Establish log for recording long distance phone calls
giving particular attention to private phone calls
❏ 9. Prepare forms for telex/fax messages
❏ 10. Establish communications log and chron files
❏ 11. Establish a regular system (shuttle) for transport of mail
and personnel between sub office and branch office (if
necessary)
❏ 12. Determine Admin Vehicle needs: Landcruisers, Pick ups,
saloons and/or minibus
❏ 13. Establish procedures for light vehicle use:
– Authority for UNHCR staff to drive official vehicles
– Driver trip logs
– Vehicle tracking system
ANNEXES
a. Model Agreement (*)
b. Example Agreement
c. UN Convention on Privileges &
Immunities
a. Excerpt from UNHCR Manual
b. Standard lease (*)
c. Note on selecting
a. Flag Code
b. List of stockpiled visibility
material
a. Base camp manager
a. Communications Info Kit
including Communications
Questionnaire
b. Telecommunications inventory
forms (*)
c. Pouch Service Instructions
a. Sitor/Pactor Manual
b. Voice procedure
c. Codan user instructions (*)
d. Handover letter for
handsets (*)
e. Handset user instructions (*)
f. Radio room discipline (*)
g. Communications procedures
b. FOM 01/93 including
Telephone log form (*)
a. Model format (*)
a. Radio message chron forms(*)
a. Shuttle Passenger Manifest (*)
a. Excerpts SFAS Handbook
b. Excerpts IAPSU Catalogue
b. Driver Log format (*)
c. Vehicle Tracking format (*)
d. Excerpt from ICRC Handbook
PREMISES
COMMUNICATIONS AND TRANSPORT

304
– Maintenance logs
– Construct key box & ensure key security
– Identify best means for vehicle servicing
– Make arrangements for the purchase of Duty Free
petrol
– Undertake driver education sessions
❏ 14. Establish staffing table with Organigram and job
descriptions. Send to the Desk at HQs
❏ 15. Identify sources for local staff recruitment. Prepare
simplified Job Application Form for local Staff. (P11 to
be used only for candidates who are being seriously
considered)
❏ 16. Recruit essential and urgently required local staff. Set
up local recruitment committee. Following selection, is-
sue short term contract and arrange appropriate med-
ical check
❏ 17. Identify UN Examining Physician if necessary if no UNDP
Office and inform SASS for JMS approval
❏ 18. Set up Personnel files for all staff
❏ 19. Establish leave recording system
❏ 20. Establish Working Hours, Overtime and DSA for local
staff on mission in country in accordance with UNDP
practice
❏ 21. Establish local mission tracking system
❏ 22. Send variable information on "Appendix B" for your
duty station to Geneva
❏ 23. Check that DSA appropriate for duty station and if
considered to be inappropriate complete DSA Work-
sheet if no UNDP Office and transmit to SASS
❏ 24. If new duty station complete Classification of Duty
Station questionnaire & send to HQs
e. Authority to drive official
vehicles (*)
f. Inventory record form
g. Vehicle inspection check list
h. Rules for drivers
i. Vehicles in UNHCR operations
j. Fuel receipt voucher (*)
k. Mileage rates
a. Typical field office structures
b. Additional example
organigram
c. Post creation and review
procedures
d. Benchmark job descriptions
a. Simplified job application form
(*)
a. Excerpt UNHCR Manual and
related recruitment forms
b. Interview notes & Report Form
(*)
c. Recruitment tests for local staff
(*)
d. Regulations for NPOs – excerpt
from APPB regulations
a. Secretariat Instruction on time,
attendance & leave
b. Example leave recording forms
b. IOM 61/88 and IOM/120/88 on
salary advances
c. Copy OT recording form (*)
d. IOM 76/89 on Overtime for
local staff
a. Mission recording format (*)
a. Format appendix B
b. DSA Worksheet & guidelines
b. Classification of Duty Station
Questionnaire
PERSONNEL, STAFF CONDITIONS AND SECURITY

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❏ 25. Review the validity of the post adjustment and if
considered inappropriate advise DHRM
❏ 26. Determine appropriateness of salary level of local staff
and if inappropriate advise DHRM
❏ 27. Arrange payment of salary and allowances of
international staff
❏ 28. Negotiate discounts in local hotels and advise HQs.
Ensure guaranteed room availability for mission staff
❏ 29. Consider security procedures and an appropriate
evacuation plan
❏ 30. Collect personal data on international staff and request
staff to complete inventories if warranted by security
situation
❏ 31. Identify best means and procedures for medical
evacuation of staff
❏ 32. Establish frequency and procedures for staff welfare
missions through MARS/VARI/STAR
❏ 33. Review the living and working conditions, report to
Headquarters and request field kits, travel kits and staff
accommodation as appropriate
❏ 34. Design and begin training and coaching programmes in
office procedures for local administrative staff
❏ 35. Survey local banks. Propose bank signatories and
interest level and request HQ to open bank account.
Propose ceiling and request approval for petty cash
account
❏ 36. Establish accounts procedures: Vouchers, Journals, files,
signatory arrangements etc.
b. Excerpt from CCAQ GS Survey
Manual
a. Salary distribution request
form and FOM/20/95 & Add.1
a. Excerpts from UN Field Security
Handbook
b. IOM 47/92 on Field Security
reporting
a. Personal Data form
b. Personal Effects Inventory form
a. Guidelines for Medevac Plan
b. IOM/104/94 and IOM/26/95 –
Guidelines on Medevac
a. Excerpts from FOM/105/94 +
addenda
a. Structure of living and working
conditions report (*)
b. Example of Emergency
Operation Living conditions
paper
c. Excerpts from Catalogue of
Emergency Response Resources
(field kits, travel kits, staff
accommodation)
d. FOM/70/95 on Accommodation
provided by UNHCR
a. Excerpts from UNHCR Training
Module
b. Notes on Coaching Skills
c. Using Interpreters (*)
d. FOM 102/88 on Language
Training
a. Excerpt of UNHCR Manual
b. Questionnaire on Opening
Bank Account
a. Allotment Account Codes For
essential guidelines on
accounting procedures refer to
Part 5, Chapter IX of the
UNHCR Manual and to the
FOAS Manual
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306
❏ 37. Request Emergency Allotment Advice if not already
received & finalize administrative budget request to
HQs on ABPS
❏ 38. Purchase and inventorise non expendable property,
particularly furniture, vehicles and equipment and
decide which to be charged to admin allotment and
which to project expenditure (if any)
❏ 39. Check stocks of stationery and supplies, sort forms into
Manila folders & order stationery and forms required
from Geneva
❏ 40. Investigate the possibility of the local printing of
stationery. If possible and the cost is reasonable, request
permission to do so from HQs. Proceed only once
address, telephone number, etc. known and not likely
to change
❏ 41. Survey EDP facilities and needs and recommend
improvements/request additional equipment. If
necessary request services of ICSS consultant to assess
optimum Admin (and programme) needs
❏ 42. Advise BO or HQs which newspapers and periodicals to
be sent on a regular basis. (This is part of field office
budgeting (ABPS) but worthwhile arranging separately)
❏ 43. Set up file list, chron files and document registration
system
❏ 44. Set up distribution system with central location of trays.
Consider local construction of pigeon holes. Establish
document circulation system
a. Copy of Emer. Allotment
Advice
b. Excerpt of Operating
Instructions of ABPS
c. FOM 120/94 Field Office Admin
Budget Procedures
a. Examples of stationary Exam-
plestationery
a. Entitlement
a. Filing principles (*)
b. Standard file list (*)
c. Chron Register Format (*)
a. Example Action Sheet (*)
b. Example Circulation Slip (*)
FILING AND DOCUMENTATION
* Available on the computer disc which accompanies The “Checklist For The Emergency Administrator”.

1. A file list should be set up immediately on
the opening of a new office. It should be done
in such a way that it can expand and contract to
take account of new situations. One must
achieve the correct balance between being too
specific and too general.
2. Three types of files should always bear a
standard format reference or symbol whether
maintained at Headquarters or in the Field: per-
sonnel (PER/IND) files, individual case (IC) files
and project files. The latter symbol is always al-
located by Headquarters.
A personnel file bears the file reference PER/IND
FAMILY NAME, Given Names, e.g. PER/IND
SMITH, Ms Jane Marie
An individual case file bears IC FAMILY NAME,
Given Names RUR (country of residence)/RUR
(country of origin)
e.g. IC SMITH, Ms Jane Marie RUR/RUR
A project file bears Year/Source of fund/Country
of operation/assistance type/project number,
e.g. 98/EF/RUR/EM/140.
3. An indication of subject files which might
be required is given below. The number desig-
nates a subject not a file. Accordingly, files may
comprise two or more file numbers.
Do not make subsequent perusal difficult by fil-
ing items out of sequence.
4. Security should be considered when filing
documents, in paper and or electronic form.
Files which should be destroyed in the event of
evacuation of the office should be marked in
advance. These should include individual case
files and personnel files.
A file should “tell a story”.
Suggested File List
1. General & External Affairs
100 UNHCR Structure/Mandate & Gen. Info.
101 Executive Committee
102 IOM/FOMs
110 Relations with (host) Government
111 Relations with local Consulates
112 Inter-Agency Meetings
113 NGOs (general & alphabetical by agency)
114 UN Agencies (general & alphabetical by
agency)
115 Inter-Governmental Organizations
(general & alphabetical by agency)
120 Reports from the field
121 Situation Reports (SITREPS)
122 Camp profiles
130 Missions to the office (UNHCR &
alphabetical)
131 Missions by office staff (alphabetical)
132 Visitors to the office (non-UNHCR &
chronological)
133 Public Information Activities & Media
Relations
134 Press releases & Press clippings
135 Conferences and Special Events
140 Training/Seminars/Workshops
150 Fund Raising/Contributions
2. Protection
200 Protection General – UNHCR
201 Human rights/Country of Origin Info.
(RUR – Alphabetical)
210 Protection (host country)
211 Detention
212 Determination
213 Tracing
214 Family Reunion
215 Physical Security of Refugees
216 Registration
3. Operations & Assistance
300 Field Operations General
301 Field Operations (by site/camp)
310 Programme General (UNHCR) including
FOBS
311 Assistance Programme General (host
country)
312 Emergency Management
313 Technical Support
314 Procurement
320 Food/Nutrition
321 Health
322 Water & Sanitation
323 Site Planning & Shelter
324 Non-Food Items & Domestic Supplies
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Annex 2 – Suggested Field Filing System

325 Logistics (procurement, transport, storage)
326 Community Services, Counselling,
Community Development
327 Education
328 Productive Activities & Income Generation
329 Camp Management
330 Repatriation
331 Local Settlement
332 Resettlement
4. Administration & Finance
400 Administrative Policy
401 Administrative Instructions
410 Office Premises
411 Office and Personnel Security
412 Asset Management
413 Expendable property & Supplies
414 Utilities
415 Records Management/Filing
416 Communications
417 Transport/Vehicles
420 Staff Rules & Regulations
421 Office Staffing
422 Applications for Employment/Recruitment
423 Salaries/Benefits/Allowances/Living
Conditions
424 Taxation/Exemptions/Privileges &
Immunities
425 Leave & Holidays
426 Travel/Mission & Leave Rosters
430 Accounting & Finance Procedures
431 Rates of Exchange
432 DSA Rates
433 Administrative Budget & Obligation
Document
308

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Introduction 1 312
Communications Management 2- 8 312
Telecommunications 9-12 312-313
Telecommunications Infrastructure
Types of Telecommunications
UNHCR Telecommunications Network 13-27 313-315
Field Preparations
Office Accommodation
Radio Equipment
Radio call-signs
Field/Headquarters Telecommunications
Telecommunications Unit – Operating Hours
Key References 315
Annexes
Annex 1: Common Communications Equipment and Terminology 316
Annex 2: Message Identification 317
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Introduction
1. Good communications are essential in an
emergency. Effective communications require
appropriate equipment, infrastructure, and
good management.
Communications Management
2. With improved means of communica-
tions, even from very remote locations, the
proper management of communications has
assumed great importance. The structure and
flow of communications should reflect that of
the management of the operation, with com-
munications being channelled in a properly
structured manner.
Raw information should not be routinely
transmitted simultaneously through several
levels of the management structure by copy-
ing reports widely, in addition to directing
them to the person responsible for action. Dis-
tribution of information should be restricted
to those who need it for the exercise of
their functions and communications traffic in
general should be restricted to that which is
necessary.
3. Originators of communications should
always ask themselves what the purpose of
the message is, who will be receiving it, and
whether the information contained is suffi-
cient and appropriate for the purpose.
4. Under the pressures of an emergency
there is sometimes a tendency to exchange
incomplete information. If the information is
insufficient for the purpose of the message,
and if the matter cannot wait, then acknowl-
edgement of gaps may save time and trouble.
For example, “further information being
obtained but meanwhile please react on
points…”
5. The most appropriate means of transmis-
sion for the message should be considered in
view of cost, urgency and bulk. For example,
avoid using the telephone or fax when the
message could be passed by electronic mail
(e-mail). Similarly, large amounts of data, un-
less very urgent, should be sent via pouch or
mail rather than by e-mail.
6. Using or developing standard forms can
assist communications management, as they
can act as a checklist for information usually
transmitted in that form of communication
(sitreps are an obvious example – see the
annex to chapter 8 on implementing arrange-
ments.)
7. An effective referencing system must be
used – this is a major factor in ensuring good
communications.
Correct numbering and/or referencing will
greatly help identify earlier communications.
It will also provide a means to systematically
track actions required and help maintain
orderly and disciplined communication. See
chapter 20 on administration for more infor-
mation on a filing system. Annex 1 describes
the official UNHCR message identification
system which is used by the Telecommunica-
tions Unit.
8. The immediate requirement for commu-
nications may be satisfied by telephone, e-mail
and fax. However, regular pouch, courier or
mail services should be established as soon as
possible. A checklist for communication needs
which should be considered when setting up
an office is contained in chapter 20 on admin-
istration. In addition, the Checklist for the
Emergency Administrator contains guidance,
forms and information for setting up different
types of communications.
Telecommunications
9. Effective telecommunications requires
staff and equipment dedicated to that task.
When planning telecommunications require-
ments, the Regional Telecommunications
Officer and the Telecommunications Unit at
Headquarters should be involved as early as
possible. These can help to identify experi-
enced UNHCR telecommunications staff who
could be deployed to the operation. Emer-
gency staff can include telecoms officers from
UNHCR’s standby arrangements. If necessary
these officers can be used to supplement
UNHCR Telecom staff.
Telecommunications Infrastructure
10. The existing telecommunications infra-
structure of the country may not support
UNHCR’s requirements, because the infra-
structure may be either inadequate or dam-
aged. Certain security situations can also
result in the telecommunications facilities
being closed down or drastically reduced
Use separate messages for clearly separate
subjects.
At each level reports and information re-
ceived should be analyzed and consolidated
before being passed to the next level.
312

(in which case cellular telephone networks
would also be unavailable).
11. UNHCR maintains a stockpile of telecom-
munications equipment for rapid deployment
to emergencies (see Appendix 1, Catalogue of
Emergency Response Resources). This equip-
ment provides emergency response staff with
immediate communication links from even
the most remote locations.
Types of Telecommunications
12. The following are the principle means of
telecommunication currently available for use
by UNHCR:
i. Telephone. Telephones can be connected
through standard landlines or cellular net-
works for communications within the
country, and through international or sa-
tellite connections (VSAT, INMARSAT – see
Annex 1) for communications with other
countries;
ii. Fax. Facsimile (fax) operates over standard
telephone lines, or satellite (VSAT, INMAR-
SAT) connections. Fax facilities are available
to and from most countries, however it is
more expensive and less easily relayed than
e-mail;
iii.E-mail. E-mail also operates over standard
telephone lines or satellite connections. In
the initial phase of an operation, e-mail can
be obtained through portable satellite ter-
minals, or using local phone lines if avail-
able, and later the SITA network or DAMA
satellite system (see Annex 1) can be used if
there is a suitable connection point;
iv. Radio. Radio can be used for voice and writ-
ten communication (including e-mail and
electronic data). Installation by qualified
technicians is required. In an emergency it is
almost always necessary to set up radio net-
works to ensure communications between
UNHCR offices and between UNHCR and
other agencies. The radio network will also
provide an emergency backup for commu-
nications with Headquarters in the event of
landline communications being cut. Mobile
radios (handheld or installed in vehicles)
enable staff in the immediate region to
maintain contact with one another and
with the office;
v. VSAT (or Very Small Aperture Terminal – a
slight misnomer as the smallest dish size is
1.8-2.4 metres in diameter). VSAT is used for
telephone, fax, electronic data and e-mail
communication. Installing VSAT is a sub-
stantial undertaking and must be carried
out by qualified technicians;
vi. Telex. Although telex is used less and less, it
still remains an option where it is available.
UNHCR Telecommunications Network
Field Preparations
13. The need for a UNHCR telecommunica-
tions network should be discussed at the high-
est appropriate level in the concerned ministry
dealing with UNHCR matters (for example, the
Ministry of Home Affairs). The advice of the
technically competent authorities should be
sought (for example the Ministry of Communi-
cations or post and telecommunications ser-
vice). Note that Section IX of the Convention
on the Privileges and Immunities of the United
Nations provides that “the UN should enjoy
for its official communications, treatment not
less favourable than that accorded to diplo-
matic missions in the country”.
14. Contact the Telecommunications Unit at
Headquarters or the Regional Telecommunica-
tions Officer as soon as the need for a telecom-
munications network is known. Give the pro-
posed number and location of offices, and
distances between them, so they can advise on
the type of equipment needed.
15. Permission to operate a radio station and
frequency clearance must be obtained – in
most countries there is a standard government
application form. In the case of HF and VHF,
check with UNDP and other UN organizations
in case they have already received clearance
for any frequencies. The Telecommunications
Unit or the Regional Telecommunications Offi-
cer can give advice on completing the govern-
ment application form.
16. It is also necessary to obtain permission to
operate satellite communications installations.
The competent authority will need to know
specific information about operating frequen-
cies and characteristics of the equipment. This
information can again be obtained through
the Regional Telecommunications Officer or
the Telecommunications Unit at Headquarters.
Office Accommodation
17. The physical requirements for telecom-
munications equipment should be kept in
mind when choosing office accommodation
(see chapter 20 on administration). For exam-
ple, a radio antenna will require space either
Communications21
313

on the roof of the building or in an open area
at ground level, and a room for the operating
equipment very close to the antenna. Note
that for optimum results, the cable connecting
the radio equipment with its antenna should
be as short as possible, and not more than
50 meters if possible.
18. VSAT installations in particular require
an uninterrupted view towards the horizon in
the direction of the equator (i.e. towards the
southern horizon in the northern hemisphere,
and towards the northern horizon in the
southern hemisphere). The angle of elevation
of the VSAT dish above the horizon will de-
pend on the latitude of the office, the highest
angle would be on the equator. If the VSAT
is installed on a building (on a flat roof for
example), the building must be strong enough
to bear the weight. If it is installed at ground
floor level, there should be enough space
around it for a safety margin (4 m radius) to
avoid the possibility of anyone coming too
close to the transmitting antenna.
Radio Equipment
19. There are two types of radio equipment
generally used by UNHCR in field operations for
voice and data transmission: HF and VHF Radio.
20. Generally, HF communications are used
for longer distances than VHF. The distance
over which VHF is effective can be greatly ex-
tended by the installation of repeaters. VHF
and HF radio would therefore be installed in
the offices and in vehicles as appropriate; de-
pending on the distance from base the vehicle
is expected to travel.
Radio Call-signs
21. Each radio installation will have its own
unique call-sign. The office installation is known
as the “Base” station, the vehicle installations
are “Mobiles”. It is useful to have a formal
naming convention for the call-signs, in order
to provide a logical reference. For example, one
letter can be used to signify the country of
operation, one letter to signify the location, fol-
lowed by one letter for the agency concerned.
Remaining letters and figures may be added to
provide additional clarity, if the number of
users on the network is particularly high. (The
country letter is normally omitted, unless cross-
border operations are taking place.)
22. For example, a UNHCR office installation
in Ruritania, Townville would be (R) T H Base,
shortened to T H Base. A vehicle installation
for the same office would be (R) T H Mobile 1
(T H Mobile 2, etc.)
23. The phonetic alphabet (see in the Tool-
box, Appendix 2) is used so that the callsigns
can be more readily understood over the
radio, thus the above example becomes Romeo
Tango Hotel Base (shortened to Tango Hotel
Base), or Romeo Tango Hotel Mobile One.
24. Call-signs for individuals using hand-held
radios will normally follow the structure, for
example (for UNHCR Townville, Ruritania):
T H 1 (“Tango Hotel One”)
Representative
T H 1 1 Deputy Representative
T H 1 2 Other staff member in
Representative’s office
T H 2 Senior Administrative Officer
T H 2 1 Administrative Assistant
T H 2 2 Other administrative staff member
T H 3 Senior Logistics Officer
T H 3 1 Logistics Assistant
T H 3 2 Other Logistics Staff member
25. The phonetic alphabet is set out in
Appendix 2, Toolbox. Further information and
other procedures may be found in “UNHCR
Procedure for Radio Communication” (pocket
sized reference booklet).
Field – Headquarters Telecommunications
26. E-mail allows the field to communicate
directly with individuals at Headquarters and
at field offices where a Local Area Network
(LAN) E-mail Post Office is installed. However,
e-mail messages sent directly to individual
staff e-mail addresses may not be read and
acted upon immediately if the staff member is
unexpectedly absent. It is better, therefore, to
address messages that require immediate
attention to a generic e-mail address, these
are addresses with the form HQxxnn, where
xx are letters indicating the organizational
unit and nn are digits denoting a sub unit,
e.g HQAF04 is the generic e-mail address of
Desk 4 of the Africa Bureau. Urgent messages
may be copied to the Telecommunications
Service Desk at Headquaters, who will alert
the relevant Desk Officer, or Duty Officer, as
appropriate.
314

Telecommunications Unit – Operating Hours
27. The Telecommunications Unit at Head-
quarters is staffed between the following local
Geneva times:
0700-2100 Monday to Friday
0800-1700 Weekends and Public
Holidays
Telephone 41 22 739 8777
E-Mail HQTU50
Swiss time is one hour ahead of GMT in winter
and two hours ahead in summer. Arrange-
ments can be made to extend these working
hours, as necessary, in emergencies.
Key References
Checklist for the Emergency Administrator,
UNHCR Procedure for Radio Communication,
UNHCR, Geneva.
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316
Annex 1 – Common Communications Equipment and Terminology
Common
Full namename or
acronym
Codan Manufacturer’s name
DAMA Demand Assigned Multiple Access
DTS Digital Transmission System
(proprietary name)
HF High Frequency
INMARSAT International Mobile Satellite
Organization
(originally called International
Maritime Satellite Organization)
Pactor Packetised Telex Over Radio
SATCOM Satellite Communications
SATCOM A, B, Refers specifically to INMARSAT
C, M, Mini-M terminals used by UNHCR
SITA Société International de Télécom-
munications Aéronautiques
UHF Ultra High Frequency
(Higher than VHF)
VSAT Very Small Aperture Terminal
VHF Very High Frequency
VHF Repeater Very High Frequency Repeater
Description and Use
High frequency radio system using voice communi-
cation, commonly used in vehicles
Satellite (VSAT) system which allows multiple lines
of telephone, fax and data to be transmitted via
satellite
A successor to PACTOR, allowing the transmission
of e-mail messages by radio
Range of frequency of radio waves used for long
distance radio communication
Phone system which provides global phone, fax
and data transmission via satellite
System whereby printed messages can be sent by
radio
Generic term for any satellite communications
system
Telephone system used for voice, fax and data
communications. The equipment comes in various
sizes, from suitcase size to small laptop and with
varying capabilities from simple telex to video-
conferencing
An organization which provides a global commu-
nications network for airline reservations and
ticketing. It can also provide a communications
network for non-airline customers (e.g. UNHCR)
Range of frequency of radio waves used for short
distance radio communication
Satellite system which allows multiple lines of
telephone, fax and data to be transmitted via
geo stationary satellite
Radio waves used for short distance radio commu-
nications (e.g. handsets or walkie-talkies)
Equipment used to extend the range of VHF short
distance radio communications to a range of
20 to 80 km, depending on the topography

The following instructions are for telecommunications operators who need to keep a formal log of
all messages received and transmitted (including e-mail, fax and PACTOR). The principles are that in
each case “HCR” must appear in the prefix and whatever the type and means of communication,
each message must bear one number unique to that transmission for each addressee.
Components of the message identity are:
q Message from Headquarters to the Field: HCR/aaaaa/9999
q Message from the Field to Headquarters: aaaaa/HCR/9999
where aaaaa is the official UNHCR location (Duty Station) code of the Field Office concerned, and
9999 is a four figure sequential number starting at 0001 on the 1st
of january each year.
q Between field offices: aaaaa/bbbbb/HCR/9999
where aaaaa is the five letter location code for the sending field office and bbbbb is the five let-
ter location code for the addressee, and 9999 = four figure sequential number, starting at 0001
on the 1st
of January each year.
q To non-UNHCR addressees: aaaaa/MSC/HCR/9999
There are two categories of four figure sequential numbers which may be used:
Category A is used for communications between Headquarters and field offices and between field
offices with a considerable message exchange. The number used would be the next in the series for
communications that year between the originator and addressee.
Category B is for UNHCR addressees who do not fall into Category A and for non-UNHCR ad-
dressees. If there are many such messages, two series may be used: UNHCR and non-UNHCR. All se-
ries or sequences restart at 0001 on the 1st
of January.
Examples
Category A messages:
HCR/ANGLU/0123 means the 123rd
message from Headquarters to Luanda, Angola this year.
ANGLU/HCR/0210 means the 210th
message from Luanda, Angola to Headquarters this year.
ANGLU/RSAPR/HCR/0097 means the 97th
message from Luanda to Pretoria, South Africa this year
(where Luanda and Pretoria use sequential numbering).
Category B messages:
ANGLU/SENDA/HCR/0024 means a message from Luanda to Dakar, Senegal, and which is the
24th
Category B message this year from ANGLU (where Luanda and Dakar do not use sequential
numbering).
If there is more than one addressee, a separate message identity must be used for each. If the mes-
sage is being sent to some addressees for information only, this should be indicated in brackets after
the respective message identity. For example messages from Luanda to Headquarters for action,
copied to Dakar for information, would bear the following:
ANGLU/HCR/0124
ANGLU/SENDA/HCR/0024
(SENDA for info)
In order that the system can work effectively any missing sequential number in Category A must be
reported to the other category A addressee as soon as possible, and the last number of the year (or
of a series) must be reported to each category A addressee. If a category A number is duplicated by
mistake, correct this by allocating the next available number and reporting this number to the
addressee by a service (SVC) message. Note that the SVC message itself should also be numbered.
Indicate the date or subject to avoid any danger of confusion.
Communications21
317
Annex 2 – Message Identification

Identifying Stress Symptoms 4-15 320-321
Cumulative Stress
Traumatic Stress
Techniques for Dealing with Stress 16-24 321-323
Preventing and Minimizing Harmful Stress
Dealing with Critical Incidents (Traumatic Stress)
Key References 323
CopingwithStress22
319

Introduction
1. Stress is a feature of life which can be
both protective and harmful. Unfortunately
“stress” is too often viewed in a negative con-
text when, in fact, it enables us to cope with
change. Protective stress is part of a natural
process – when threatened, the body always
reacts with the same general adaptive mecha-
nisms. The physical symptoms that occur when
we are under stress enables us to “flee” or
“fight” the threat. This response is a basic life
protecting mechanism, enhancing physical
and mental defences and preparedness – it
focuses attention, and mobilizes the energy
and resources necessary to be able to take
appropriate action. Stress therefore allows us
to remain productive even in the face of
changing and challenging situations. Stress re-
actions are dependent on our personality, our
professional experience and our physical and
emotional well-being.
2. However, when the circumstances induc-
ing the stress are excessive, very intense or
continuing over a period of time, stress may
begin to negatively affect an individual’s per-
sonality, health and ability to perform.
3. Stress takes up an enormous amount of
energy. Being in a stressful situation is physi-
cally and mentally exhausting. However, once
out of the crisis environment and given time
to rest, people usually recover their normal
equilibrium.
4.
Identifying Stress Symptoms
5. Emergency personnel are exposed to
many types of stress and what is needed is to
have the “ideal” level. Too little causes bore-
dom, lack of stimulation and fatigue, too
much and we become overwhelmed physically
and mentally. The names given to the harmful
types of stress are cumulative stress and trau-
matic stress.
Cumulative stress
6. Cumulative (or chronic) stress builds up
slowly as a result of the magnitude and multi-
plicity of demands, lengthy working hours
and daily frustrations and difficulties of living
and working in emergencies. Because stress
reactions develop so slowly and imperceptibly
it is quite often difficult to notice them in one-
self, they are, however, usually noticeable to
close colleagues.
Once removed from a stressful situation and
with the possibility for rest and relaxation, a
person generally recovers quickly and may
become aware of the difference in how one
responds to situations when one is not expe-
riencing stress.
Team leaders need to be particularly observant
of individual reactions during an emergency.
7. Symptoms of stress can be physical and
psychological. There could be changes in ordi-
nary behaviour patterns, such as changes in
eating habits, decreased personal hygiene,
withdrawal from others and prolonged si-
lences. Symptoms of cumulative stress can be
seen in every facet of our lives. The following
non-exhaustive list gives an indication of some
of the most observed symptoms:
Physical symptoms:
i. Gastro-intestinal
Dry mouth, impression of having ones heart
in ones mouth, nausea, vomiting, sensation
of bloating, heartburn, abdominal pain,
appetite changes diarrhoea, constipation;
ii. Cardiovascular
Elevated blood pressure, rapid heart beat,
hot flushes, cold hands and feet, sweating;
iii.Respiratory problems
Breathlessness, panting, sensation of not
being able to breathe;
iv. Musculoskeletal
Cramps, back pain, trembling, nervous ticks,
grimacing;
v. Neurological
Headache.
Psychological symptoms:
I. Emotional
Anxiety, anguish;
ii. Behavioural
Sleep problems, abuse of cigarettes alcohol
or drugs, modification in ones libido;
Individuals in emergency work, who are
experiencing high stress levels, are not the
best judges of their own ability to cope.
Understanding normal reactions to stressful
situations, knowing how to handle these
and early attention to symptoms can speed
recovery and prevent long-term problems.
In an emergency, reactions to stress are
normal.
320

iii.Intellectual
Concentration difficulties, memory difficul-
ties, problems with reasoning and verbal
expression.
8. The presence of several of these symp-
toms may mean that a person’s coping ability
is diminishing and work performance is being
affected. However, the signs and the degree
of stress presented by a person in any given
situation will vary, depending on the level of
stress experienced, previous emotional experi-
ences and the personality of the individual.
9.
Traumatic Stress
10. Traumatic stress is brought on by unex-
pected and emotionally powerful events (“crit-
ical incidents”) that overwhelm the individ-
ual’s usual coping abilities. Critical incidents
may arise in the context of a major disaster
or emergency, and could be, for example,
injury or death of a colleague, hostage taking,
deaths of children, undergoing great personal
risk, being a powerless witness of violence,
or seeing or being associated with a tragic
event accompanied by intense media coverage
(especially if this is inaccurate).
11.
12. The reactions after a critical incident can
resemble those of cumulative stress but they
can be much more pronounced. Vomiting in-
stead of nausea as an example. The following
are mental survival mechanisms that allow us
to deal with the event:
Emotional numbing, changes in the percep-
tion of time, along with a sense of ones live
flashing before ones eyes, highly focused at-
tention or tunnel vision, hyperarousal with
sharpened senses.
These initial responses can be replaced in the
period of time immediately after the incident
by:
Hyperactivity, exaggerated humour, argumen-
tativeness, social withdrawal, fear, anxiety,
sadness, grief, memory problems, poor con-
centration, slow thinking and loss of percep-
tion in addition to the physical symptoms
mentioned above.
13.
14. However, occasionally a serious condition
termed Post Traumatic Stress Disorder (PTSD)
can result from critical incidents. The risk of
PTSD can be considerably reduced by prepara-
tion, on-site care, and post incident defusing
or debriefing.
15. The diagnosis of PTSD is made by a psy-
chiatrist or psychologist based on the presence
of various elements which include:
i. Invasive memories (flashback);
ii. Nightmares and sleep disturbance;
iii. Repeated reliving of the event;
iv. Detachment;
v. Avoidance of trigger persons or situations;
vi. Hyperarousal;
vii. Anxiety, depression, grief, anger;
viii. Suicidal thought;
ix. Reactions intensifying over time;
x. Clear alteration of personality;
xi. Withdrawal from others;
xii. Continued rumination about event;
xiii. Constant expectations of a new disaster;
xiv. Persistent sleep difficulties;
xv. Total absence of reactions;
xvi. Phobia formation;
xvii.Reactions continuing for 3 to 4 weeks.
Techniques for dealing with Stress
Preventing and Minimizing Harmful Stress
16.
17. Being well prepared, both physically
and psychologically, is an important way to
reduce the chances of harmful stress. This
It is important to recognize that it is impos-
sible to take care of others if you do not
take care of yourself.
It should be emphasized that these symp-
toms are normal reactions to abnormal
events and in most cases will disappear.
Staff might experience acute reactions dur-
ing a critical incident or a delayed stress
reaction minutes, hours or days after the
event. In rarer cases reactions may come
after a few months or years.
If the cyclic causes and resultant symptoms
of cumulative stress are not promptly ad-
dressed, exhaustion sets in, leading eventu-
ally to “burnout”. Should this happen one
needs rest and counselling.
CopingwithStress22
321

preparation not only includes understanding
stress and how to handle it, but also educat-
ing oneself in advance on the living condi-
tions, job, likely problems, local language and
culture. It is important to be both physically
and psychologically fit to work in a particular
situation.
18. To prevent stress overload during an
emergency, firstly, know your limitations. In
addition, there are several practical steps to
take:
i. Get enough sleep;
ii. Eat regularly;
iii.Control intake of alcohol, tobacco and
medicines;
iv. Take time for rest and relaxation;
v. Take physical exercise. Physical exercise re-
leases tension and helps maintain stamina
and good health (any sort of exercise for
at least 20 minutes per day). Beneficial
exercise for stress reduction also includes
deep breathing and muscle relaxation
exercises;
vi. Give expression to the stress: Put words to
the emotions you feel – find a colleague
whom you trust to talk with;
vii.Keep a diary, it may not be as effective as
talking, but it can help.
19. Other ways of reducing stress are:
i. Inward coping: When a person performs
difficult work in physically and emotionally
threatening conditions, internal dialogue
can add to the stress if it is highly negative
and self-critical. To remain focused on the
task, avoid unhelpful internal dialogue such
as, “I’m no good at this. Everything I am do-
ing is making things worse”. Instead make
positive helpful statements to talk oneself
through difficult moments. For example,
“I don’t feel like dealing with this angry
person right now, but I have done it before,
so I can do it again”;
ii. Peer support: Use the “buddy system”: staff
members may agree in advance to monitor
each other’s reactions to identify signs of
excessive stress and fatigue levels;
iii.Setting an example: Supervisors in particu-
lar have an important role to play as they
can provide an example in the way they
handle their own personal stress, e.g. by
eating properly, resting and taking appro-
priate time off duty. The team leader
who tells a colleague, “Remind me to eat,
and get me out of here the moment you
notice any sign of fatigue. I’m no good
when I’m tired”, is setting a positive exam-
ple for the staff;
iv. Permission to go off duty: In a crisis many
staff members need to be given permission
to take care of themselves. People do bet-
ter in difficult situations when they feel
that other people care about them. Team
leaders are responsible for giving such spe-
cific permission to themselves and to their
staff, for example, by giving permission to
take the afternoon off, etc. The correct use
by staff members of Mars and Vari can
serve to alleviate stress.
Dealing with Critical Incidents
(Traumatic Stress)
20. Stress defusings and debriefings are ways
of protecting the health of staff after crises.
The person or people who experienced the
critical incident talk about the incident,
focusing on the facts and their reactions to it.
They should take place in a neutral environ-
ment, and never at the scene of the incident.
They should be led by a trained professional.
The information given below is intended to il-
lustrate these processes and does not give suffi-
cient detail to enable an unqualified person to
perform either a debriefing or a defusing.
Defusing
21. Defusing is a process which allows those
involved in a critical incident to describe what
happened and to talk about their reactions
directly after the event. A defusing should
take place within a few hours of the event, its
format is shorter than that of a debriefing. It
consists of three steps:
i. Introduction
Introduction of everyone present, a descrip-
tion of the purpose of the defusing, and
stimulation of motivation and participation;
ii. Exploration
Discussion of what happened during the
incident;
iii.Information
Advice to the participants about potential
reactions to the incident, guidance on stress
management, practical information, ques-
tions and answers.
The expression of emotion has proved to be
an effective technique in reducing stress.
322

22. Angry feelings can be a normal reaction
to an upsetting event and staff should be able
to “let off steam”. This is not the time for criti-
cism of professional performance – this should
be dealt with at a separate meeting.
Critical Incident Stress Debriefing (CISD)
23. In cases where staff have to deal with
intense distress, defusings may be insufficient
and need to be followed by a formal debrief-
ing from a mental health professional. De-
briefing is a process designed to lessen the
impact of a critical incident. It occurs in an
organized group meeting and is intended to
allow those involved in a critical incident to
discuss their thoughts and reactions in a safe,
non-threatening environment. The team leader
or a responsible member of the emergency
team should request the Division of Resource
Management at Headquarters to provide or
help identify a mental health professional to
conduct a debriefing. Sessions are normally
held for groups of staff having undergone in-
tense stress. They aim to integrate the experi-
ence, provide information on traumatic stress
reactions, and prevent long-term conse-
quences including Post Traumatic Stress Disor-
der, and help staff manage their own personal
reactions to the incident.
24. If a debriefing or defusing is not offered
spontaneously after a trauma is suffered, re-
quest one. Information on individual consulta-
tions for UNHCR staff members and work-
shops on stress related issues can be obtained
from the Staff Welfare Unit, HQ Geneva.
Telephone: 00 41 22 7397858
Confidential Fax: 00 41 22 7397370
Key References
An Operations Manual for the Prevention of
Traumatic Stress among Emergency Services and
Disaster Workers, Jeffrey T. Mitchell and George
Everly, Elliot City Maryland, 1995.
Coping with Stress in Crisis Situations, UNHCR,
Geneva, 1992.
Humanitarian Action in Conflict Zones – Coping
with Stress, ICRC, Geneva, 1994.
International Handbook of Traumatic Stress
Symptoms Edited by John P. Wilson & Berverley
Raphael, 1993.
Managing Stress, Terry Looker, Olga Gregson,
London, 1997.
Confidentiality is important. It should be
possible to express strong emotions, secure
in the knowledge that this will stay within
the group.
CopingwithStress22
323

Introduction 326
The UN Security System 1- 9 326
Essential Plans 10-22 327-329
The Security Plan
Medical Evacuation Plan
Movement Control Plan
Routine Radio Checks
Security 23-42 329-332
Personal Security
Residential Security
Base Security
Field Security
Cash Security
Crowd Control and Security
Mine Awareness
Protection Equipment
Security Management 43 332
Key References 332
StaffSafety23
325

Introduction
x The primary responsibility for the safety of
staff members, their dependants and prop-
erty and that of the organization, rests with
the host government;
x Every effort should be made to facilitate the
tasks of the government in the discharge
of its responsibilities by making appropriate
supporting arrangements and through reg-
ular liaison and exchange of information
with the host country security officials;
x All of the recommendations below should
be considered in addition to, and comple-
mentary with, actions taken by the host
country security officials;
x Every office should have a security plan and
a medical evacuation plan;
x The cardinal rule for landmines is that when
in doubt, stay away. Inform the host coun-
try military. Any suspicious object should be
treated as a landmine or booby trap.
The UN Security System
1. UN system-wide arrangements are de-
scribed in detail in the UN Field Security Hand-
book (see references) and outlined here.
The UN Security Co-ordinator (UNSECOORD),
based in New York, acts on behalf of the
Secretary-General to ensure a coherent re-
sponse by the UN to any security situation.
UNSECOORD produces monthly publications
on security conditions on a country by country
basis. In addition, the Field Safety Section at
Headquarters can provide country specific in-
formation and advice.
2.
This responsibility arises from every govern-
ment’s inherent role of maintaining law and
order within its jurisdiction.
3. UNHCR and other UN organizations may
lend assistance, when possible and to the extent
feasible, to protect other people such as staff of
NGOs working in co-operation with them.
UNHCR has no legal obligation towards others
working with refugees.
4. In each country, a senior UN official called
the Designated Official (DO) is the person in
charge of the security management arrange-
ments of the UN system. The DO is accountable
to the Secretary-General through UNSECOORD
for the safety of UN personnel.
5. The principle responsibilities of the DO
include:
❏ Liaising with host government officials on
security matters;
❏ Arranging a security plan for the area and
including provision for relocation of National
staff and evacuation of International staff;
❏ Informing the Secretary-General (through
UNSECOORD) of all developments which
may have a bearing on the safety of staff
members;
❏ Carrying out relocation or evacuation
where a breakdown in communication
makes it impossible to receive the Secre-
tary-General’s prior approval;
❏ Forming a Security Management Team
(SMT);
❏ Informing the senior official of each UN
organization of all security measures.
6. The DO will form an SMT, the function of
which will be to advise him or her on security
matters. The SMT is normally composed of:
the DO; field security officers; a medical offi-
cer; an internationally recruited staff member
familiar with local conditions and languages; a
staff member with a legal background and
any agency staff who by training, background
or experience will contribute to the team.
7. In large countries with regions separated
from country headquarters in terms of dis-
tance and exposure to emergencies, a UN staff
member may be designated as the Area
Security Co-ordinator (ASC). The ASC acts on
the DO’s behalf and will normally have re-
sponsibilities for staff safety similar to those of
the DO, but within that region of the country.
UNHCR may be requested by the DO to under-
take this role.
8. The ASC (or DO where there is no ASC
for the region) will appoint security wardens
who will have responsibility for security within
particular predetermined zones. A separate
warden system for nationally recruited and in-
ternationally recruited staff may be required.
The warden system should include all humani-
tarian agencies.
The primary responsibility for the security
and protection of staff members rests with
the host government.
UN organizations have agreed to system-
wide arrangements for the safety of UN
staff and property in the field.
326

9. The primary tool for security prepared-
ness is the security plan, which is the key
feature of the UN security system.
Essential Plans
10. In addition to the basic security plan,
UNHCR offices must have a medical evacua-
tion plan, and may have a movement control
plan and routine radio checks.
The Security Plan
11. The security plan will be country specific
and have five phases. The DO may implement
measures under Phases One and Two at his or
her own discretion, and notify the Secretary
General accordingly. Phases Three to Five will
normally be declared by the DO only with the
prior authorization of the Secretary-General.
However, if there is a breakdown in communi-
cations, DOs may use their best judgement
with regard to the declaration of phases Three
to Five, and report to the Secretary-General as
soon as communications allow.
12. The UN security phases are:
Phase I: Precautionary
In this phase, clearance from the DO is required
prior to travel.
Phase II: Restricted Movement
This phase imposes a high level of alert on the
movements of UN staff members and their
families. During this phase all staff members
and their families will remain at home unless
otherwise instructed.
Phase III: Relocation
This phase is declared by the Secretary
General, on the advice of the DO. It includes
concentration of all international staff mem-
bers and their families, relocation of non-
essential staff and families elsewhere in, or
out, of the country. Deployment of new staff
must be authorized by the Secretary General.
Phase IV: Programme Suspension
General, on the advice of the DO. It allows for
relocation outside the country of all interna-
tional staff not directly involved with the
emergency, humanitarian relief operations, or
security matters.
Phase V: Evacuation
General, on the advice of the DO. The evacua-
tion of all international staff should be carried
out according to plans prepared beforehand.
13. The person responsible for security at
each location (DO, ASC) should draw up a
security plan within the framework of the
country security plan. This will need to be reg-
ularly updated. Each situation will be different
and will require different levels and structur-
ing of the plan. Guidelines for drawing up the
plan are in the Field Security Handbook, and
copied in the Checklist for the Emergency
Administrator.
14. The following are typical headings in a
security plan:
A. Summary of the security situation at
the duty station.
B. Officials responsible for security: those
in the local area, in Geneva and in New
York, with their call signs, phone and fax
numbers.
C. List of internationally recruited staff
members and dependants. This will need to
be updated constantly, and should include
basic details such as full name, nationality,
date of birth, passport and laisser-passer
numbers with date and place of issue. A
means of tracking visiting missions should
be established. The UN Field Security Hand-
book contains annexes to record this infor-
mation in a standard format; copies of
these are also found in the UNHCR Check-
list for the Emergency Administrator.
D. List and details of locally recruited staff
and their dependants. This will need to be
updated constantly.
E. Division of area into zones. Zones
should be marked on a map with the num-
bers and residences of staff-members
clearly marked. The map should indicate
the warden responsible for each zone.
F. Communications. This should include
details of phone numbers, call-signs and ra-
dio frequencies of all staff, including those
of offices in neighbouring countries.
G. Selection of co-ordination centre and
concentration points. The plan should indi-
cate a number of co-ordination centres and
concentration points, and should indicate
the stocks and facilities which should be
available at these points. It may not be pos-
sible for all staff-members to reach the
same concentration point and alternatives
should be foreseen.
H. Safe haven and means for relocation
and evacuation. The plan should include in-
StaffSafety23
327

formation on all possible means of travel –
by air, road, rail and ship as applicable.
Normally only internationally recruited
staff can be evacuated outside the country.
Under the UN security system, the provi-
sions for evacuation outside the country
may be applied to locally-recruited staff
members in only the most exceptional cases
in which their security is endangered, or
their property is lost or damaged as a direct
consequence of their employment by UN
organizations. Under the UN security sys-
tem, a decision to evacuate locally recruited
staff can only be made by the Secretary-
General (based on recommendations by DO
and UNSECOORD). However, during phases
3, 4 or 5, the DO may exceptionally either
a) permit locally recruited staff to absent
themselves from the duty station on special
leave with pay or b) may relocate them to a
safe area within the country and authorize
payment of DSA for up to 30 days. Up to
three months salary advance may be paid
and a grant to cover transportation costs
for the staff member and eligible family
members. Arrangements to pay locally re-
cruited staff these various amounts should
be included in the plan.
I. Essential supplies: The plan should in-
clude estimates of the requirements for es-
sential items of food, water, fuel etc. which
will be needed by the community for a rea-
sonable period of time. Individual items to
be kept ready should also be listed. These
include: passports, laissez-passers, vaccina-
tion certificates, travellers cheques and cash.
J. Plan for handing over the running of
the office to the National Officer in charge.
Planning for evacuation
15.
These actions include how to deal with confi-
dential documents and individual case files
(including those on computer files), financial
data, cash, radios, computers and vehicles.
16. Any paper files which need to be de-
stroyed in the event of sudden evacuation of
the office should have been marked in a man-
ner agreed-upon and understood by all staff.
Such files would include: individual case files,
local staff personnel files, etc. If time permits,
the shredding and/or burning of these files
should be a top priority. Emptying sensitive
files onto the floor and mixing their contents
with others will afford some protection if there
is no time to burn them. Staff should be sensi-
tive to the security situation and bear in mind
when creating paper or electronic documenta-
tion that it might have to be left behind.
17. It should be agreed in advance which
electronic files (including electronic mail files)
should be deleted first. In order to truly de-
stroy confidential electronic records from a
computer disk (regardless of whether it is a
hard disk or a floppy disk), it is necessary to
use special software designed for this purpose.
Merely deleting the file(s) does not remove
the information from the disk, it only marks
the space which the file occupies on the disc as
being available for re-use.
Medical Evacuation Plan
18. Every office should have a medical evacu-
ation plan to cover evacuation from that office.
The plan should include information about the
nearest medical facilities inside and (if appro-
priate) outside the country, what types of
service they provide and to what standard,
means of transport to these facilities in case
of evacuation, and types of evacuation scenar-
ios (the Checklist for the Emergency Adminis-
trator includes a format for a Medevac Plan, as
well as flow charts 1
for decision making for
evacuation).
19. All heads of UNHCR country offices (i.e.
representatives, chiefs of mission or, in their
absence, the officer in charge) may authorize,
without reference to Headquarters, medical
evacuation of staff in the circumstances set
out in detail in IOM/104/94FOM/107/94, New
Medical Evacuation Scheme, and IOM/FOM
26/95, Medical Evacuation in Extreme Emer-
gencies – SOS Assistance. These IOM/FOMs are
included in the Checklist for the Emergency
Administrator. Briefly, medical evacuation can
be authorized:
i. For all international staff and consultants
and eligible family members, in order to se-
cure essential medical care which cannot be
secured locally as a result of inadequate
medical facilities (and which must be
treated before the next leave outside the
duty station);
ii. For local staff and eligible family members,
in situations of great emergency when a
The security plan should note who will take
what actions at the UNHCR office in the
event of evacuation.
328
1
Contained in IOM/104/94 FOM107/94.

life-threatening situation is present, or in
cases of service-incurred illness or accident.
In addition, evacuation can be arranged in
extreme emergencies through SOS Assistance
(a private company which provides 24 hour
world-wide emergency evacuation). However,
this is very expensive and not covered by
UN insurance. It can be used in life threaten-
ing situations, and where an evacuation by
normal means cannot be organized in view of
the gravity of the illness or injury. A password
is needed before SOS Assistance takes action
for UNHCR – heads of offices should ensure
they obtain this password from the Division of
Human Resource Management. The password
should be known by the Head of Office and
the Deputy Head of Office.
20. The medical evacuation plan should be
written with close reference to the relevant
IOM/FOMs, and the advice of the UNHCR pro-
gramme health coordinator should be sought,
as well as that of any medical NGOs. When an
evacuation may be necessary, a UN Examining
Physician should assist in decisions as to the
degree of urgency and facilities required.
Movement Control Plan
21. A movement control plan should be pre-
pared when there is a need to track the move-
ment of vehicles, and should provide a means
to determine the current location of the vehi-
cles and passengers and whether they are over-
due from a trip. The plan usually consists of a
fixed schedule of radio calls to the vehicle from
the base station (e.g. every 30 or 60 minutes) in
order to report the current location of the
vehicle to the base station. This information
should be updated on a white-board following
each radio-call. The driver of every vehicle should
confirm safe arrival at the end of the trip.
Routine Radio Checks
22. Routine radio checks should be insti-
tuted when the current location and welfare
of staff-members needs to be known. Radio
calls from the base station can be made on a
fixed schedule or randomly.
Security
23. Keys to effective security are:
i. First and foremost, personal awareness on
the individual level;
ii. Appropriate behaviour to diminish the risk
of security incidents;
iii.Appropriate response by the individual to
security incidents.
Personal Security
24. For personal security, bear in mind the
following:
❏ Be aware of and alert to your surroundings;
❏ Observe the behaviour of other people liv-
ing in the area. Local people will probably
know more about general security threats
than you do;
❏ Don’t travel alone;
❏ Don’t carry large amounts of money;
❏ Don’t travel after dark if it can be avoided.
Most security incidents occur after dark;
❏ When leaving base, make sure someone
knows where you are going and when you
are expected back;
❏ Lock vehicle doors and keep the windows
rolled up when travelling;
❏ Park vehicles to allow for fast exit;
❏ Don’t take photographs around military
personnel or military installations;
❏ Have cash, documents, and an emergency
bag packed and ready to go at all times;
❏ Always be polite: be aware that your be-
haviour to local officials, police or military
can rebound negatively on other staff.
Residential Security
25. Several steps can be taken to improve
residential security:
❏ Make sure there are good solid doors.
Never have glass doors on the exterior;
❏ Install a peep hole, a safety chain and a se-
curity bar;
❏ Keep the entrance door locked at all times,
even when at home;
❏ Install bars and grills, at least on the
ground floor;
❏ All windows should have locks;
❏ Draw curtains at night;
❏ Install outside lighting;
❏ Have emergency power sources, candles
and torches;
❏ Keep a watchdog or other animals like
goats, geese or peacocks;
❏ Install a telephone or walkie-talkie.
StaffSafety23
329

Depending on the circumstances and if au-
thorized by UNSECOORD from the UN system,
UNHCR can cover the costs of some of the
improvements listed.
Base Security
26. Base security should be improved by:
❏ Hiring guards:
❏ The host country authorities sometimes
provide guards. Guards hired by UNHCR are
not permitted to carry lethal weapons
while on duty. Guards should be trained
and briefed, and should wear a uniform or
some identifying garment;
❏ Ensuring there are lights:
❏ Lights should be powerful and should light
up an area outside the perimeter fence,
providing a barrier of illumination in which
intruders can be detected.
❏ Installing fences and controlling access:
Double fences with razor wires form an
effective barrier. There should be more
than one entrance/exit. Sensitive locations
(for example, the accommodation area,
communications room, generators and fuel
store) may need to be surrounded by a
barrier of sandbags. Procedures to control
access to the compound need to be es-
tablished. The fenced compound should
be self-contained and equipment (e.g.
spare tires, jacks, fire extinguisher, first aid
kits, generators, water pumps), should be
checked and maintained on a routine basis.
Field Security
27. Several steps should be taken by relevant
staff and heads of office to improve field secu-
rity:
❏ Develop a movement control plan (see
above);
❏ When planning to travel, check the latest
security situation with the DO, others who
have been there, host country officials
other UN agencies, NGOs, traders;
❏ Get all required authorizations, from the
DO and host country authorities;
❏ Ensure that all staff know what to do in
case of accident or breakdown – simple
procedures should be established;
❏ Ensure that vehicles are properly equipped
with extra food and water, sleeping bags,
mosquito nets, tents, water filters, fuel,
tow rope, jumper cables, spare tire, tire
jack, flashlight, batteries, first aid kit, travel
documents, radio, vehicle insurance papers,
shovel and maps;
❏ Ensure that vehicles are in good mechanical
condition and are checked regularly. Cer-
tain items, such as brakes, tire wear, fluid
levels, lights, installed radios, should always
be checked prior to every field trip;
❏ Ensure that all staff know what to do at
checkpoints – establish procedures for staff
to follow. It is against UN policy to allow
anyone carrying arms in UN vehicles.
Cash Security
28. Ideally staff members should not carry
large sums of money in cash. If there is a func-
tioning banking system in the area, then this
should be used to the maximum extent possible.
29. If it is necessary to transport cash then
arrangements should be made with the host
country authorities for protection of the funds.
Cash in large amounts should be kept on hand
for the shortest possible time, and should ei-
ther be deposited in a bank or be disbursed
quickly to pay salaries or meet other legitimate
expenditure. Advance payments could be con-
sidered to reduce amounts of cash being stored
(provided financial rules are adhered to).
30. Measures which can contribute to secu-
rity while transporting cash include making
use of:
i. Professional couriers;
ii. Armoured vehicles;
iii.Armed guards;
iv. Deception. There should be no regularity in
the arrangements: The timing, route, and
other details should change every time;
v. Discretion.
The number of people knowing about the
movement of cash, the identity of persons
carrying cash, their routes and timetables,
should be kept to the barest minimum
necessary.
Crowd Control and Security
31. If crowds cannot be avoided:
❏ Ensure that clear information is provided to
the crowd, so that they know what is going
on and what to expect;
❏ Work with representatives of the people to
organize the crowd into small groups and
get them to sit down;
330

❏ Do not engage in unruly group discussions;
❏ When discussing grievances, meet with a
small number of representatives of the
crowd, never with the mass meeting;
❏ Provide sanitary facilities, water, shade and
shelter;
❏ For crowd control, use monitors from
among the people themselves;
❏ If confronted by a crowd when in a vehicle,
do not get out. Check that the doors are
locked and drive away carefully;
❏ Maintain poise and dignity if confronted by
a hostile crowd, do not show anger.
Mine Awareness
32. In countries with high risk of mines, all
offices should ensure there is appropriate
training and reference materials (see refer-
ences) – the information contained here is not
sufficient, but provides only broad guidance.
33. It is extremely difficult to spot a mined
area, so the first priority is to ensure you have
up to date information about possible mined
areas from local residents and de-mining
organizations. Travel with a map marked with
this information and update it by checking
with local residents.
34. Be aware of the following:
❏ Signs: learn which signs indicate known
mined areas (whether local signs, UN or
other signs);
❏ No-go areas: avoid areas which are avoided
by the local population;
❏ Visible mines or indicators: some mines are
visible. There may also be evidence of mine
packaging;
❏ Disruption in the local environment: for ex-
ample disturbed soil if recently laid, and de-
pressions in the ground in an old mine field;
❏ Trip wires;
❏ Mine damage (e.g. dead animals) which
could indicate the presence of other mines.
35. When driving, the following precautions
should be taken:
❏ Wherever possible stay on hard surfaced
roads.
❏ Always follow in the fresh tracks of another
vehicle, at least 50 m behind the vehicle in
front.
❏ Flak jackets can be used as a seat cushion
and as a foot protection.
❏ Wear the seat-belts, and keep windows
rolled down and doors unlocked.
36. If you encounter a mine:
❏ Keep away, do not touch it;
❏ Do not try to detonate it by throwing
stones at it;
❏ Stop the vehicle immediately;
❏ Stay in the vehicle, even if it is damaged
and call for assistance.
37. If you have to leave the vehicle:
❏ Notify your location by radio;
❏ Do not move the steering wheel;
❏ Put on any protective gear available;
❏ Climb over the seats and leave the vehicle
by the rear, walk back along the vehicle
tracks. Never walk around the vehicle;
❏ Leave at least a 20 m gap between people;
❏ Close the road to other traffic.
38. When travelling on foot:
❏ Never walk through overgrown areas: stick
to well used paths.
39. If there is a mine incident:
❏ Do not immediately run to the casualty.
Stop and assess the situation first. There
may be other antipersonnel mines in the
vicinity, and administering first aid to one
victim could result in another victim;
❏ Only one person should go to the casualty,
walking in his exact footprints, to apply
first aid;
❏ Do not attempt to move the casualty unless
absolutely necessary, call for mine-clearing
and medical assistance.
40. Within the UN system, mine clearance
and related issues are primarily the respon-
sibility of DPKO. Chapter 19 on voluntary
repatriation contains some information about
programme aspects of mines.
Protection Equipment:
41. Typical equipment that has been used by
UNHCR includes:
i. Bullet proof vests for protection against
most bullets;
ii. Flak jackets for protection against shrap-
nel;
iii. Helmets for protection against shrapnel;
StaffSafety23
331

iv. Ballistic blankets fitted in vehicles, for pro-
tection against hand grenades and anti-
personnel mines;
v. Armoured cars;
vi. Shatter resistant windows;
vii. Military combat rations for concentration
points;
viii.Metal detectors for body searches.
42. These items can be ordered through the
Supply and Transport Section in co-ordination
with the relevant Bureau and Field Safety
Section.
Security Management
43. Heads of offices, whether at field or
branch level should take action to ensure the
security and safety of staff members. In addi-
tion to the responsibilities implicit in the
above sections, appropriate security manage-
ment measures also include:
❏ Ensuring both you and your staff have
access to relevant, accurate and up-to-date
information;
❏ Providing systematic briefings with all staff
on the security situation and on the security
plan itself. Bear in mind that some staff,
particularly national staff, may provide
valuable input into these briefings because
of their local knowledge;
❏ Encouraging staff awareness: a key to effec-
tive security is personal awareness and good
individual response to security situations;
❏ Providing training to all staff on hazards
specific to the duty station;
❏ Ensuring the availability of materials on
staff stress management and security in the
duty station (see key references);
❏ Reporting security related incidents to
Headquarters (Field Safety Section);
❏ Ensuring there is good communication with
other organizations and NGOs about the
security situation;
❏ Ensuring the office has a medical evacua-
tion plan. In addition, the country repre-
sentative should ensure he or she (and their
deputy) has the SOS Assistance password in
the case of extreme medical emergency.
Key References
Checklist for the Emergency Administrator,
IOM/26/95-FOM26/95, Medical Evacuation in
Extreme Emergencies – SOS Assistance, UNHCR,
Geneva, 1995.
IOM/104/94-FOM/107/94, New Medical Evacua-
tion Scheme, UNHCR, Geneva, 1994.
Land Mine Safety Handbook, CARE, Atlanta,
1997.
Security Awareness Handbook, UNHCR, Geneva,
1995.
Security Guidelines for Women, United Nations,
New York, 1995.
United Nations Field Security Handbook, United
Nations, New York, 1995.
332

24
Working with the Military
334

Legal Framework for International Military Action
Categories of Military Forces 6-13 336
UN Forces
Regional Forces
National Forces
Non-state Forces
Possible Roles of Military Forces
in Humanitarian Operations 14-22 337
Delivering Humanitarian Assistance
Information Support
Security of Humanitarian Operations
Evacuation
Coordination between Military Forces
and Civilian Agencies 23-27 338
UN Coordination with Military Forces
Establishing Principles and Reconciling Mandates
Liaison Channels
Key References 339
WorkingwiththeMilitary24
335

Introduction
x In humanitarian emergencies UNHCR staff
will sometimes work alongside military
forces: these might be UN forces (“blue
berets”), national or regional forces acting
under mandate from the UN, or other na-
tional or regional forces;
x Humanitarian agencies must be, and be
seen to be, neutral and impartial acting
solely on the basis of need. It is important
that these agencies maintain independence
even from UN authorized military activities;
x Each operation will need to develop a coor-
dinating structure suited to the situation,
the type of forces and the required civil-
military relationship;
x The UN Department of Peace-keeping
Operations (DPKO) is responsible for all UN
peacekeeping operations and has overall
responsibility for UN relations with military
forces.
1. Working with military forces can bring
both opportunities and challenges for human-
itarian agencies.
2. Military forces can support humanitarian
agencies only within the limitations of their
own resources and priorities, and within
the limitations of their authority to provide
humanitarian assistance, including how and to
whom the assistance is provided.
Legal Framework for International Military
Action
3. One of the purposes of the United
Nations, as set out in its Charter, is to maintain
international peace and security. The Charter
invests the Security Council with this specific re-
sponsibility, and describes the measures which
can be taken to achieve this in Chapters VI
and VII of the UN Charter.
4. Chapter VI, dealing with the peaceful
settlement of disputes, mandates both the
Security Council and the General Assembly
to make recommendations upon which the
parties in dispute can act. Peacekeeping oper-
ations under Chapter VI take place, at least in
theory, with the consent of the parties to the
conflict.
5. Chapter VII, dealing with mandatory
measures, allows for enforced solutions to a
dispute where the Security Council has iden-
tified “a threat to the peace, a breach of the
peace or an act of aggression”. Article 42 pro-
vides for the use of armed force “as may be
necessary to maintain or restore international
peace and security”.
Categories of Military Forces
6. The military forces with which UNHCR
may be involved or encounter include:
i. UN forces (peacekeeping);
ii. Regional or other forces acting under UN
authority;
iii.Regional military alliances (e.g. NATO and
ECOMOG), ad hoc coalitions,
iv. National forces;
v. Non-state forces.
UN Forces
UN Peacekeeping Forces
7. UN forces (“blue berets”) usually fall into
the categories of observer missions or peace-
keeping forces. These UN forces are assembled
from countries willing to contribute and who
are acceptable to all the parties to the conflict.
8. Observer Missions are made up mainly
of lightly armed officers whose main function
is to interpret the military situation to assist
political and diplomatic mediation.
9. Peacekeeping forces usually contain com-
bat units with logistics support. In the past,
peacekeeping activities have included:
i. Positioning troops between hostile parties,
thereby creating buffer or demilitarized
zones and the opportunity to act as a
liaison between the parties to the conflict;
ii. Promoting the implementation of cease-
fires and peace accords by observing and
reporting on military activity, assisting in
the disengagement, disarmament and de-
mobilization of forces and prisoner ex-
changes;
iii.Assisting local administrations to maintain
law and order, facilitating free and fair
elections by providing security;
iv. Protecting humanitarian relief operations
by securing warehouses and delivery sites
and routes, escorting humanitarian aid con-
voys, ensuring security for humanitarian aid
workers, and providing logistics support;
v. Supporting humanitarian operations by un-
dertaking engineering tasks for the mainte-
nance of essential utilities, services and aid
delivery routes in a time of crisis, disposing
336

of mines and other weapons, delivering
humanitarian relief supplies or providing
logistics assistance to humanitarian agencies.
UN Mandated or Authorized Forces
10. Under Chapter VII of the UN Charter the
Security Council may authorize or mandate
the deployment of national or regional forces
with a “war-fighting” capability. These forces
normally will have tighter security rules than
UN peace keeping Forces and Observer
Missions, and UNHCR staff may find access
to facilities or information more difficult. Man-
dated forces often do not report to a civilian
chief inside the area of operations, and may
therefore see themselves as acting independ-
ently of the international authority directing
the civil and humanitarian programmes.
Regional Forces
11. UNHCR may also work alongside regional
forces such as peacekeeping or intervention
forces set up under the direction of regional
institutions (for example, the Organization for
African Unity, (OAU) or NATO.
National Forces
12. Humanitarian agencies may have to
coordinate or negotiate with host country mil-
itary, police, gendarmerie, militia or other
armed elements. UNHCR staff should balance
the advantages and disadvantages of accept-
ing assistance or security from such forces,
particularly in circumstances where there is no
clear command structure.
Non-state Forces
13. These often consist of rebel groups, mili-
tia and other armed groups which have little
or no sense of discipline, a poorly defined
chain of command and often no discernible
political programme.
Possible Roles of Military Forces in
Humanitarian Operations
Delivering Humanitarian Assistance
14. In exceptionally large emergencies and
as a last resort, military assets could be used to
deliver humanitarian assistance, for example
in the form of an airlift.
15. UNHCR has entered into an understand-
ing with a number of governments that those
governments will provide pre-packaged,
stand-alone emergency assistance modules,
called Government Service Packages (GSP).
There are twenty different types of packages
providing assistance in certain technical or
logistical areas such as long range airlift, road
transport, water supply and treatment, sanita-
tion and road construction. GSPs are not
designed to be substitutes for traditional im-
plementing arrangements in these areas, but
are to be used only as a last resort in excep-
tionally large emergencies, where every other
avenue has been exhausted.
16. Due to their extraordinary scale and cost
it is assumed that GSPs, if called upon, will rep-
resent additional funding and will not be
deployed at the expense of funds that would
otherwise have been available to UNHCR. The
Military and Civil Defence Unit also has
arrangements with governments to use these
pre-packaged emergency resources, as well as
packages covering other areas. Within UNHCR,
the responsibility for the development and de-
ployment of GSPs rests with the Director of the
Division of Operations Support. Further infor-
mation can be found in the Catalogue of Emer-
gency Response Resources (see Appedix 1).
17. When these assets are deployed the
operation must maintain its civilian character
and appearance. The guiding principles of
impartiality, neutrality and independence
from political considerations must be carefully
adhered to.
Information Support
18. Military forces usually have a greater
capacity to collect information than humani-
tarian agencies. This includes aerial reconnais-
sance information which may be of value in
tracking the movement of refugees and in site
selection. Care must be taken, however, in the
interpretation and use of such material: the
information it provides needs to be carefully
weighed against information available from
other sources, in particular first hand informa-
tion form UNHCR staff on the ground.
Security of Humanitarian Operations
19. The Geneva Conventions of 1949 (see
Annex 1 to chapter 2 on protection) oblige
the parties in conflict to grant access for
humanitarian aid, but does not provide for its
forcible imposition should access be denied.
Parties to a conflict may be unable or unwill-
ing to control threats to the safety of humani-
tarian personnel and operations. Peacekeep-
ing mandates may therefore include specific
duties relating to the security of humanitarian
337

personnel, including creating the conditions in
which humanitarian operations can be carried
out in safety.
20. However, using force to protect humani-
tarian assistance may compromise the founda-
tion of those activities, since the actual use of
force, by its nature, will not be neutral. Before
using peacekeeping or other forces to protect
humanitarian activities, the priority should
always be to negotiate with all the parties to
the conflict to try to ensure humanitarian
access. The use of military force to secure the
provision of humanitarian assistance should
never become a substitute for finding political
solutions to root causes of the conflict.
21. Where it is necessary to use peacekeep-
ing forces for the security of humanitarian
operations, it is particularly important to
maintain a neutral stance and to ensure that
this impartiality and neutrality is apparent to
all parties.
Evacuation
22. Any plan for evacuation of humanitarian
workers should be coordinated with any mili-
tary forces present (see Chapter 23 on Staff
Safety).
Coordination Between Military Forces
and Civilian Agencies
UN Coordination
23. The Department of Peace-keeping Oper-
ations (DPKO) is responsible for UN peace-
keeping. This includes the deployment of its
military and civilian personnel to a conflict
area (with the consent of the parties to the
conflict) in order to stop or contain hostilities,
and supervise the carrying out of peace agree-
ments. DPKO therefore has overall responsibil-
ity for the UN’s relations with military forces.
24. Where a UN force is deployed, there will
usually be a Special Representative of the
Secretary-General with overall responsibility
for all related UN operations, including hu-
manitarian operations.
25. There is a Military and Civil Defence Unit
(MCDU) within the UN Office for the Coordi-
nation of Humanitarian Affairs (OCHA). The
task of the MCDU (based in Geneva) is to help
ensure the most effective use of military and
civil defence assets in support of all types of
humanitarian operations, including refugee
emergencies, where their use is appropriate.
Among UN humanitarian organizations, the
MCDU is the focal point for governments,
regional organizations and military and civil
defence organizations concerning the use of
these assets.
Establishing Principles and Reconciling
Mandates
26. Misunderstandings between military for-
ces and civilian agencies can be avoided if, at
an early stage, time is spent on clarifying:
❏ The objectives and strategies of the opera-
tion as a whole, and of each of its civilian
and military components;
❏ The basic principles, legal constraints, and
mandates (local or global) under which each
organization or force operates;
❏ The activities, services, and support which
the organizations or forces can expect from
each other, as well as any limitations on
their ability to deliver;
❏ Which aspects of the operation will be led
by the civilian agencies and which by the
military forces, and when there should be
consultation before decisions are made;
❏ The fora in which the humanitarian agen-
cies make decisions about their operations
(e.g. the coordinating body described in
chapter 7, on coordination).
Liaison Channels
27. Proper communication channels need to
be developed between civilian and military
organizations in order to deal with the differ-
ences in organizational priorities, structure
and size. The risk of civilian agency staff being
overwhelmed by multiple approaches from
the military can be avoided by providing a
single point of contact for the military
through the designation of one UNHCR staff
member as a liaison officer where the size of
the operation justifies this. The military forces
may have specialist civil affairs units. These
units will often be made up of reservists with
particular civilian skills or military specialists
and act as the main point of contact between
the humanitarian and military organizations.
Within the military, the hierarchy is as follows:
General, Colonel, Lieutenant Colonel, Major,
Captain, Lieutenant, Warrant Officer, Sergeant,
Corporal, and Private.
338

Key References
A UNHCR Handbook for the Military on Human-
itarian Operations, UNHCR, Geneva, 1995.
Humanitarian Aid and Neutrality, Morris N,
UNHCR Symposium 16-17 June 1995, Fondation
pour les Etudes de Défense, ISBN 2-911-101-02-2.
The US Military/NGO Relationship in Humani-
tarian Interventions, Seiple C., Peacekeeping
Institute, US Army War College, 1996.
UNHCR IOM/91/9 UNHCR/FOM/96/97, UNHCR
and the Military, UNHCR, Geneva, December
1997.
Working With The Military, UNHCR, Geneva,
1995.
339

Catalogue of Emergency
Response Resources
340
Human resources
Staff support
Operations support items
Operations support services
Financial resources
Emergency training
United Nations High Commissioner for Refugees
March 1998 – Rev. 6
Note: This catalogue is updated regularly, please consult the latest edition

Introduction
The purpose of this catalogue is to provide information on the range of available emergency
response resources and the means by which they can be requested. The need for such resources
emanated from a strategy to enhance UNHCR’s capacity to respond to emergencies which was
instituted at the end of 1991. Many Sections in UNHCR have a key role in maintaining and devel-
oping these resources, which have already been extensively used in emergency situations. The
need to introduce additional emergency response resources or adapt existing ones is constantly
under review. The Catalogue is, therefore, updated on a regular basis so as to incorporate
amendments and additional resources.
It should be emphasized that the resources listed in this catalogue are intended for emergency
response only. Given the need to ensure a minimum capacity and maintain a high level of readi-
ness it is not usually possible to use them for ongoing operations for which response to needs
should be planned.
The Emergency Preparedness and Response Section, UNHCR, welcomes feedback on the effec-
tiveness of the resources as well as suggestions for additions.
EPRS
March 1998
While this catalogue may be of interest for information purposes to persons and agencies external to
UNHCR, it is intended for use by UNHCR staff for emergency response.
The catalogue may be obtained by direct request to:
Emergency Preparedness and Response Section, UNHCR Headquarters (EM00), P.O. Box 2500,
CH-1211 Geneva Depot 2, Switzerland, Fax: (++41-22) 739 7301, E-mail: hqem00@unhcr.ch
341

human resources
Emergency Preparedness and Response Officers (EPRO)
Senior Emergency Administrator (SEA)
Emergency Finance and Administrative Assistants (EFAA)
Emergency Response Team Roster
Field Staff Safety Section (FSS)
Norwegian and Danish Refugee Council Emergency Staff
United Nations Volunteers
Arrangement with Specialist Agency – Red R (Australia)
Arrangement with Specialist Agency – Radda Barnen (Sweden)
Arrangement with Specialist Agency – SRSA (Sweden)
Arrangement with Specialist Agency – CDC (USA)
Technical Consultants
staff support
Staff and Office Accommodation
Personal Travel Kits
Field Kits
Office Kits
Emergency Kit for Unaccompanied Children
Computer Equipment
Vehicles
Telecommunications Equipment
Visibility Material
Emergency Operations Room
operations support items
Tents
Emergency Health Kit
Blankets
Kitchen Sets
Jerry Cans
Plastic Sheeting
Prefabricated Warehouses
operations support services
Government Service Packages
Emergency Capacities of Non Governmental Organizations (database)
Standby Arrangement for Trucks and Aircraft (EMERCOM of Russia)
operations management tools
Contingency Planning: a practical guide for field staff
Refugee Registration Package
Handbook for Emergencies
Checklist for the Emergency Administrator
Commodity Distribution
financial resources
UNHCR Emergency Fund
UNOCHA Central Emergency Revolving Fund (CERF)
Distance Learning Modules
Emergency Management Training Programme (EMTP)
Workshop on Emergency Management (WEM/ERT)
Targeted Training
342

Emergency Preparedness and Response Officers (EPRO)
The Emergency Preparedness and Response Section (EPRS) is staffed with five Emergency Preparedness
and Response Officers who are on standby for emergency response. In the event of an emergency
where the UNHCR Branch Office lacks adequate resources to respond or where UNHCR has no prior
presence, the EPRO can be deployed at very short notice to lead an emergency team or existing staff in
the establishment and/or strengthening of UNHCR's presence. An EPRO may also be deployed to lead a
needs assessment mission which will make recommendations relating to the deployment of other emer-
gency resources.
The EPRO reports directly to the UNHCR Representative or, where there is no existing office, to the Re-
gional Bureau at Headquarters. Prior to each deployment, the EPRO's terms of reference will be estab-
lished by the Bureau. The duration of deployment will depend on the nature of the operation, but should
be limited to the critical emergency phase during which the basic structures and direction of the operation
will be put in place. In general this period is not expected to exceed two months. An EPRO cannot be
deployed to fill management or staffing gaps in existing operations.
In addition to operational deployment, EPROs are responsible for emergency preparedness activities,
including:
– monitoring regional developments
– assisting in the contingency planning process
– developing management tools to enhance effective emergency response
– participating in the review of procedures to improve emergency response
– identifying emergency training needs on the basis of deployment experiences
– serving as resource persons for emergency management trainings.
To ensure adequate regional coverage in preparedness activities, each EPRO is assigned responsibility
for a specific geographical area. However, where operational deployment is concerned, maximum flexi-
bility will be maintained.
How to request
The deployment of an EPRO is normally accompanied by the deployment of other emergency resources
in order to mount an effective response to an emergency situation. Should a comprehensive response
package be required, a request from the Director of the Bureau should be addressed to the Director of
DOS.
After clearance at the Director level, the Head of Desk should advise the Chief of EPRS (preferably in
writing) the destination, proposed duration, terms of reference, language requirements as well as any
other specific skills required for the assignment. EPROs may in principle be deployed with 72 hours
notice. Should an EPRO not be available, an experienced ERT member (see section IV) may be deployed
instead.
The mission costs of the EPRO will be charged to the respective country programme.
343

Senior Emergency Administrator (SEA)
One Senior Emergency Administrator (SEA) is based in EPRS on a standby capacity. This staff member
has experience and training in all aspects of administration (human resources, finance and general ad-
ministration), as well as proven managerial skills and experience. When not deployed on emergencies
SEAs may be assigned to non-emergency situations where the need for skilled administrative capacity is
deemed by the concerned technical/functional section in Headquarters (e.g. DFIS, PCS, SSS etc.) to be
critical. In such cases deployment will range from short assessment and advisory missions to assignments
lasting a maximum of three months.
A brief description of possible functions follows:
– identify and administer office premises
– establish and improve office procedures
– plan staffing needs, recruit and administer staff
– oversee finance and banking procedures
– ensure proper procedures for communications
– oversee transport arrangements
– oversee security plans
– ensure adequate staff support and staff training
– supervise phase out of emergency team and hand-over.
The SEA will supervise administrative staff, both international and local, and relieve the operations
manager of administrative concerns. It should be noted that this is a senior management position and
deployment will be to major emergency complex operations. Alternatively the SEA may be called upon
to cover numerous field offices on a “roving” basis.
Emergency Finance and Administrative Assistants (EFAA)
Two Emergency Finance and Administrative Assistants (EFAAs) are based in EPRS on a standby capacity.
These staff members have experience and training in all practical aspects of administration (human
resources, finance and general administration). Particular attention has been paid to thorough financial
and accounting skills. During an emergency deployment, the EFAA's main objective is to set up proper
administrative procedures and also to train locally recruited staff in UNHCR practices and procedures so
that they may work independently upon the departure of the Emergency Response Team. When not
deployed in emergencies EFAAs may be assigned to non-emergency situations where the need for
skilled administrative capacity is deemed by the concerned technical/functional section in Headquarters
(e.g. DFIS, PCS, SSS etc.) to be critical. EFAAs have also been trained as Programme Assistants and can act
in this capacity in an Emergency Response Team. Assignment lengths for all deployments will be up to
three months.
A brief description of possible functions follows:
– identify banking facilities and make banking arrangements
– establish field office accounts; prepare and monitor administrative budgets
– establish control measures (vehicle & telephone logs, inventories, travel authorizations etc.) for all
expenditure
– handle all personnel programme management and administration matters
– recruit and/or train local staff in finance and personnel administration
The EFAA may be assigned as part of an emergency response team, reporting either to an EPRO, SEA,
BO Administrative Officer or Head of Sub Office. The EFAA may supervise local administrative staff.
How to request
A written request from the Head of Desk, cleared with the Bureau Director, should be addressed to the
Chief of EPRS, stating the destination, proposed duration, terms of reference, language requirements
and any other specific skills required for the assignment. Deployment decisions will be made in consul-
tation with the concerned technical sections. An SEA or EFAAs may in principle be deployed within
72-hours notice.
Requests for deployment in non emergency situations may be entertained as long as the assignment is
not simply to fill a management gap. It should be understood, however, that these assignments are time-
limited, and require clear terms of reference. An SEA or EFAAs may also be withdrawn in case of an
emergency. The mission costs of an SEA or EFAAs will be charged to the respective country programme.
344

Emergency Response Team (ERT) Roster
The Emergency Response Team (ERT) Roster comprises a pool of some 30 internal staff members, drawn
from various duty-stations and sections in Headquarters, who are on standby for emergency deploy-
ment. While ERT Roster members may be proficient in specific functional areas of UNHCR operations
(protection, programme etc.) they are expected to function with as much versatility and flexibility as
possible in order to cope with the demands of emergency situations. The roster is reviewed twice a year
(January and July) with new rosters commencing at the beginning of April and October. The inclusion of
staff members on the ERT Roster is cleared in advance with supervisors. Staff not deployed during one
six month period may, with the agreement of the staff member and their supervisor, be included in the
following roster. At the beginning of their term on the roster, staff members attend the Workshop on
Emergency Management (WEM/ERT) [see section on Emergency Training] where they are prepared for
deployment as members of an ERT.
Members of the ERT Roster can only be deployed to meet the critical needs of an emergency or a repa-
triation operation when existing resources are unable to cope or where UNHCR has no prior presence.
While ERT Roster members are normally deployed with an EPRO, they may exceptionally be deployed to
complement existing staff or to act as Team Leader depending on the nature of the emergency and on
EPRS' resources at a given time. ERT Roster members are on standby for emergency deployment for a
fixed period of six months during which they may be deployed for a maximum of two months. No ex-
tension of an ERT Roster member’s deployment can be envisaged, as this could have adverse repercus-
sions on the releasing office.
UNHCR staff who wish to be considered for inclusion on the ERT Roster should write to the Chief of EPRS
through the Head of their Section/Branch/Field Office. Such communications should be copied to the Bu-
reau Administrative Officer. Lastly, staff members already deployed in emergency duty stations are usu-
ally not considered for inclusion in the ERT.
How to request
Once emergency response has been approved at the Director level the overall staffing needs for the spe-
cific situation should be discussed between the Desk, DRM and EPRS, on the basis of which, the source of
these staff will be determined. If ERT Roster members are required, EPRS will activate their deployment.
As with all staff resources, clear terms of reference, duty station, anticipated duration of assignment and
special skill requirements need to be specified from the outset by the Desk. Furthermore, it is important
for the Desk, EPRS and DRM to work out a plan for the withdrawal of the ERT Roster members from the
emergency deployment, and frequent joint meetings until the replacement arrangements are firm.
The mission costs of ERT Roster members will be charged to the respective country programme.
Field Staff Safety Section (FSS)
The Field Staff Safety Section comprises three Field Staff Safety Advisors (FSSAs) who are based in
Geneva. Although the main occupation of those based in Geneva is the carrying out of regular security
assessment missions, they also provide support to the field on request. They are also engaged in the
formulation of policy, the training of UNHCR deployed staff members, and recruitment/deployment of
FSSAs to hazardous areas around the world.
FSS can be requested to provide security assessments and to temporarily deploy FSSAs on missions to
emergencies. An FSSA may be available to be deployed either from Geneva, or a temporary redeploy-
ment from another duty station, depending on the security situation in the various regions at the time
of the request.
FSSAs can be requested to provide assessments on physical security of residences and offices, prepare
and provide comments on various security plans (communications, movement control, evacuation,
medevac, etc.), establish liaison with host country security authorities for the safety of staff members,
provide security training for staff members, etc. Depending on the desires of the Head of Office, these
services can also be made available to other UN organizations and NGO partners.
How to request
A written request should be addressed to the Head of Desk and copied to FSS, stating destination and
proposed duration of mission, language requirements and other specific skills required.
The mission costs normally will be charged to the respective country programme.
345

Norwegian and Danish Refugee Council Emergency Staff
To complement internal staff resources for emergencies, a standby arrangement has been established
with the Danish and Norwegian Refugee Councils. Under this arrangement, Nordic staff who have been
pre-identified, screened and trained can be deployed within 72-hours notice to UNHCR operations any-
where in the world. Nordic staff are issued UN certificates and participate in operations as UNHCR staff
members. Although, in principle, this arrangement can provide for any profiles normally needed in a
UNHCR operation, it has been found to be particularly effective in the deployment of telecommunica-
tion experts, base camp managers, logistics and field officers. With prior training, Nordic staff have also
been found to be effective protection officers.
As an emergency resource, Nordic staff can only be deployed a maximum of six months. Since the secon-
dees are normally on leave of absence from their normal jobs, it is important that no extension beyond
this period be requested. It must be emphasized that, although the maintenance of the standby roster
is provided free of charge to UNHCR, all costs related to the deployment of staff will be charged to the
relevant programme. Nordic staff will only be deployed if it has been established that urgent staffing
requirements cannot be met from internal sources.
How to request
A request form (available from EPRS) for DRC/NRC deployment should be completed by the requesting
Desk and submitted to EPRS describing briefly:
– the emergency situation;
– details of staff requirements (number of staff required, functional title(s), duty station, date of deploy-
ment, duration, language, if briefing in Geneva is necessary, supervision arrangements in the field);
– information on living conditions at the duty station.
EPRS will act as contact with the Councils and liaison with the Desk (specifically on operational require-
ments, budget submission, preparation of letter of mutual intent and sub-agreements) from the re-
questing period up to repatriation travel of the secondees. The terms and conditions of deployment are
governed by the Agreement between UNHCR and DRC/NRC. The Desk and Field should avoid subse-
quent independent negotiations with the DRC/NRC staff. Checklists providing more detail of the proce-
dures to be followed are available upon request from EPRS.
United Nations Volunteers (UNV)
A similar arrangement as that with the Nordic Councils has also been established with UNV/HRLO
(Humanitarian Relief and Liaison Office). The parameters defining UNV deployment are stipulated in
the Exchange of Letters signed between UNHCR and UNV in November 1992. Under this arrangement,
UNVs can be deployed to UNHCR emergency operations within one week, instead of in several months
as under normal UNV procedures. UNV recruitment is done with the participation of UNHCR represen-
tatives/or designated officers in the field. This complements the Nordic arrangement in that it offers a
wider mix of nationalities as well as more language capabilities.
UNVs are deployed on a short term basis instead of the traditional two-year UNV assignment. Thus they
can be deployed to meet urgent emergency staffing needs for a three to twelve month period. Where a
longer period is foreseen (for example 6-12 months), it is desirable to request this from the outset-
instead of a shorter period with extensions – since this allows for better planning. From experience,
UNVs are needed in emergencies for a minimum of three to six months. If necessary they can also be
called upon to meet staffing gaps in the transition from an emergency team to the assignment of long-
term staff. UNVs deployed under this arrangement can only be considered for staff recruitment by
UNHCR after they have served a minimum of twelve months as UNVs. The costs of these deployments
will be charged to the relevant programme.
How to request
For emergency deployment, EPRS will liaise with the Humanitarian Relief Liaison Office of UNV in
Geneva, to ensure that UNVs are identified, selected and deployed according to the requirements of
the emergency operation.
The Desk will be required to complete a UNV Post Description form (available from EPRS) indicating
project information, post description and conditions, and living conditions at the duty station. This is
submitted with a covering letter, from the Desk directly to the Chief of UNV/HRLO, with a copy to EPRS
specifying availability of funds and indicating the project to be charged. A checklist providing detailed
procedures of UNV deployment is available from EPRS.
346

Arrangement with Specialist Agency — Red R (Australia)
A Memorandum of Understanding has been concluded with Registered Engineers for Disaster Relief
(Red R) Australia, through which Red R (Australia) will provide, on short notice, qualified and experi-
enced engineers to join emergency response teams or be assigned separately to emergencies for peri-
ods up to three months. Red R maintains a roster of experts in physical planning, water, sanitation and
road construction. The costs of maintaining the roster as well as for the deployment of 20 engineers for
three months each year are provided through a grant from the Government of Australia. All engineers
on the roster undertake training through distance learning and attend short group sessions to prepare
them for UNHCR emergency deployments.
How to request
Once it has been agreed that engineering specialists are required in an emergency operation, a request
should be submitted to the Head of Desk and EESS, with a copy to EPRS. EESS is the focal point for con-
tacts between Red R (Australia) and UNHCR and will inform Red R of the Terms of Reference as well as
all other details relating to the mission.
Arrangement with Specialist Agency — Radda Barnen (Sweden)
A Memorandum of Understanding has been signed with Radda Barnen Sweden which permits the de-
ployment of trained social workers to refugee emergency situations with 72 hours notice in order to
take part in UNHCR needs assessment missions and in the initial establishment of community-based so-
cial services. The terms of reference of the community services co-ordinators would have a three-phased
approach:
1) assessment, action plan and guidelines;
2) foundation of community services structures;
3) building up of community services.
Radda Barnen will maintain a roster of 20 experienced and trained people, six of whom may be made
available at any time. Radda Barnen staff will be seconded to UNHCR for a period that will not normally
exceed three months.
Staff seconded by Radda Barnen are deployed as members of the UNHCR team and report to the UN-
HCR designated officer in charge of the operation. Radda Barnen staff are funded by Radda Barnen and
compensated in accordance with its personnel regulations.
How to request
Once it has been agreed that the inclusion of community services should be considered as part of the
emergency response, a request for Radda Barnen deployment should be completed by the Head of
Desk, and addressed to the Chief of EESS, with a copy to EPRS, describing the emergency situation, de-
tails of staff requirements, proposed duration, date of deployment, language requirements, if briefing
in Geneva is necessary, supervision arrangements in the field and information on living conditions at the
duty station.
347

Swedish Rescue Services Agency
In the most extreme field conditions, where an operation has to be established in an environment
where almost all infrastructural support would need to be brought in from the outside, the Swedish
Rescue Services Agency (SRSA) is on standby for deployment to provide a comprehensive range of staff
support. SRSA can be deployed, with 72-hours notice, with equipment and a team of staff to establish
office and housing facilities, sanitation, water, electricity, telecommunications, transport and nursing
services, for UNHCR staff. On the basis of deployment experience, SRSA has repackaged its staff support
services in order to be able to meet needs under different climatic conditions, as well as when only a
part of its services are required.
It has been agreed that the involvement of the SRSA should be limited to a period of four to six weeks,
which should provide UNHCR sufficient time to establish longer-term support facilities. Should it be nec-
essary, a base-camp manager can be deployed to maintain the facilities established by the SRSA until
such time as local arrangements can be found for the longer term. The decision to deploy the SRSA
support team should only be made after a field assessment which might include a SRSA representative.
While this standby facility has been provided to UNHCR free of charge, the actual cost of deployment
will be charged to the relevant programme.
Where the UNHCR Staff and Office Accommodation package is used, the SRSA is able to provide a base
camp manager familiar with the package to manage the facility during the initial stages of its use.
How to request
The deployment of the SRSA for staff support is normally a part of a comprehensive emergency
response package and has to be approved by the HQ Task Force established to mount the emergency
operation. On the basis of detailed information about the emergency situation and conditions in the
field provided by the Desk, EPRS will formulate an official request to the Swedish Government in order
to obtain Cabinet clearance for the deployment of the SRSA.
The Desk should ensure that budgetary provisions have been made and a project agreement between
UNHCR and the SRSA should be prepared immediately after the budget has been submitted by the
SRSA and agreed by UNHCR. Since deployment may occur prior to the finalization of the agreement, a
letter of intent, prepared by the Desk, may be required in the first instance.
Arrangement with Specialist Agency — Centers for Disease Control (USA)
UNHCR maintains a Memorandum of Understanding with the U.S. Public Health Service (PHS) which es-
tablishes specific areas of collaboration with the Centers for Disease Control and Prevention (CDC). The
specific areas covered under the terms of the MOU are: rapid health and nutrition assessment, improve-
ment of epidemic preparedness and response, prevention and control of communicable diseases, train-
ing of local and international health staff, co-ordination of health care delivery services and nutrition
programmes in emergencies, maternal and child health activities, sanitation, water supply and environ-
mental health activities.
Within the standby arrangement CDC has identified a core group of experts who would be available at
short notice to respond to technical assistance requests made by UNHCR for rapid health and nutrition
assessments in emergency situations. Deployment of CDC staff would normally vary from four to eight
weeks but could be extended to three months upon request.
Staff seconded by CDC are deployed as members of the UNHCR team and report to the UNHCR desig-
nated officer in charge of the operation. They will, however, be funded by CDC and compensated in
accordance with PHS policy.
How to request
Once it has been agreed that CDC specialists are required in an emergency operation, HCDS will be the
focal point for contacts and deployment requests to CDC. HCDS will inform CDC (and other relevant
UNHCR sections) of the terms of reference as well as all other details relating to the mission.
348

Technical Consultants
The engineering and environmental services section EESS maintains a roster of some 500 individual
consultants and consultancy companies, covering the following disciplines:
– agriculture, fisheries and livestock
– community and social services
– development planning and project planning
– economics and finance
– education
– emergency planning
– energy
– health/nutrition
– income generating activities
– environmental sanitation
– site planning, shelter and other infrastructure
– social sciences
– transport and logistics
– water supply
Names are constantly being added to the roster which is updated every six months to ensure that all
consultants continue to be available. A short list of some 10 persons experienced in each of the major
sectors and prepared for immediate deployment is maintained as a sub-category of the roster for emer-
gency response.
Consultants may be deployed as part of contingency planning or needs assessment missions, as well as
part of Emergency Response Teams. In the response phase, they will often be called in on mission to
provide the necessary technical input into programme development.
How to request
Once the need has been identified, requests for consultants will be detailed in a memorandum from the
Desk and EESS to DRM through PCS. EESS will normally recommend one (or more) consultants which
will need the approval of one or more members of the Consultancy Committee (made up of EESS staff).
The submission will include the terms of reference, the timing of the assignment, estimated cost and
proposed source of funds and the CV of the prospective consultant. Where consultancy firms are
thought to be more appropriate for the task, the selection of suitable candidates or firms must be in
accordance with UN Financial rules.
349

Staff and Office Accommodation
A major difficulty encountered in recent emergency situations has been that of providing staff with
acceptable living and office accommodation in areas where there is little or no infrastructure. To this
end, a standard “staff and office accommodation” package has been elaborated which will provide
acceptable living and working conditions for a maximum period of one year for UNHCR staff assigned
to extreme hardship duty stations. One package can provide living accommodation for a maximum of
25 people and office space for approximately 40; it has been designed on a modular concept thus
enabling deployment of selected elements when needed. Each package comprises:
– 25 individual fully furnished accommodation modules
– 5 four-person fully furnished local staff/visitors sleeper modules
– 10 ablution modules
– 1 laundry module
– 1 kitchen module
– 1 dining/recreation module
– 1 water system module
– 8 office modules
– 1 meeting room module
as well as furnishings; equipment; electrical systems; interior plumbing distribution; ablution fixtures
(flush toilets only); camp water distribution; water purification and internal camp sewerage distribu-
tion; fire extinguishers for sleepers, kitchen, dining room and meeting hall; security fencing; compound
lighting; electrical power supply; fuel storage; fire extinguishers and incinerator.
Two complete staff/office accommodation packages are stockpiled in Amsterdam. The cost of deploy-
ment of a complete package amounts to approximately $ 900,000. Upon request STS or EPRS will pro-
vide detailed costings of individual elements of the package.
How to request
1. Requests for the release of items from the Central Emergency Stockpile (CES) should be made by the
Bureau through the CES Focal Point in STS and confirmed in writing, preferably by e-mail. After re-
viewing the request, STS will initiate form SF(1) which will be forwarded to the Certifying Officer
(Head of Desk or other authorized signatory). The transfer of appropriate funds to the Emergency
Stockpile project will be authorized by the Certifying Officer with availability of funds being con-
firmed by the FPCS.
2. The Field Office should provide detailed information on living conditions in the country concerned as
well as the number of staff members for whom the accommodation is required. In addition, the Sup-
plier will require detailed information relating to local conditions such as site ground conditions,
grading and excavation conditions, distance to local services, availability and cost of local skilled
labour; security services; construction materials; vehicles and site material handling equipment; elec-
trical power, water supply, gasoline and diesel fuel.
3. Responsibility for the erection of the accommodation will rest with the Supplier. UNHCR will facili-
tate the work of the Supplier and will assist in obtaining visas, permits etc. To facilitate coordination,
a copy of the contract with the Supplier, which spells out respective obligations will be provided to
each requesting office.
350

Personal Travel Kits
The travel kit is a carry bag with a UNHCR logo, which is small enough to comply with airline cabin bag-
gage size requirements. It includes a sleeping bag, pillow, mosquito net, towel, torch, small medical kit,
rain poncho, plate/bowl, sun hat, water bottle and water filter. It weighs 8 kg and its value is US$ 360.
Travel kits will be provided to emergency response staff deployed to difficult locations during the very
early phase of an operation where staff support arrangements have not yet been put in place. It can
also be provided to field staff who are required to travel frequently to locations in the "deep" field
where living conditions are unpredictable. Any staff member provided with a travel kit will not be enti-
tled to another kit on any subsequent assignment. Once the emergency operation is under way, living
conditions should improve, and at this stage the office should advise Headquarters that travel kits are
no longer required by new staff. In some instances a number of travel kits may be sent in advance to a
new office and allocated to staff in the field.
How to request
Personal travel kits are released on the basis of information from the field on living conditions. The
Desk or PCS should submit a request to EPRS by e-mail (HQEM00). Upon approval, EPRS will forward an
Emergency Stockpile Release Form (ESF1) to the Certifying Officer (Head of Desk or other authorized
signatory). The transfer of appropriate funds to the Central Emergency Stockpile project will be author-
ized by the Certifying Officer with availability of such funds being confirmed by DFIS.
Field Kits
Field kits can be provided for deployment to difficult locations. These have a comprehensive range of
survival items for improving field conditions. The kit is intended to provide staff with total self suffi-
ciency for three days. A stock of up to 100 kits is held by BSU at Headquarters and replenished up to the
maximum level when stocks fall below 50 units.
The contents of the kit come in an aluminium waterproof trunk, weighing 50 kg with a value of
US$ 1,360. It includes:
– Dome shaped tent; Sleeping kit (sleeping bag, camp bed, mosquito net, pillow, ground mattress
– Shower screen and water bag with shower attachment
– 3 dry food ration packs
– Water bottle, cooking pots, dishes and cutlery, plastic food containers
– Torch, candles, matches, fuel tablets
– Purification tablets and water filter
– First aid kit, sun screen and insect repellent
– Swiss army knife and compass
– Small back-pack and money pouch
– Rubber gloves, elastic bands, aluminium foil
– First aid manual
– Hand soap, bath towel, tissues, toilet paper, mirror, sewing kit
– Writing materials
– Plastic poncho, sun hat
– Tool kit, metal chain, padlock, nylon rope, scotch tape, masking tape
How to request
Field kits are released on the basis of information from the field on living conditions. The Desk or PCS
should submit a request to EPRS by e-mail (HQEM00). Upon approval, EPRS will forward an Emergency
Stockpile Release Form (ESF1) to the Certifying Officer (Head of Desk or other authorized signatory). The
transfer of appropriate funds to the Central Emergency Stockpile project will be authorized by the Certi-
fying Officer with availability of such funds being confirmed by DFIS.
351

Office Kits
The Office Kit comprises items of stationery, supplies, forms and some small non-expendable office
items, which are packed in 2 cardboard boxes, and which together weigh 120 kg. It is valued at
US$ 1,200. Its contents include:
– UNOG stationery catalogue
– UNHCR Manual, Checklist for the Emergency Administrator
– Stapler, scissors, staple remover, hole punch, pencil sharpener, adhesive tape, staples, elastic bands,
paper clips, pins
– Pencils, ball point pens, felt tip pens, rulers, correction fluid
– Stamp pad, date stamp, UNHCR Seal
– Desk diary, chron register
– Car pennants, key tags
– Shorthand pads, A4 note pads, note books
– Carbon paper
– Portable manual typewriter
– Desk calculator with printer tape
– Files, file folders
– Computer diskettes
– UNHCR Forms:
• sickness insurance
• leave application
• sick leave report
• properly survey board report
• vehicle accident report
• travel claims
• travel authorization
• inventory form
• personal history form
• leave & absence report
• entry medical exam form
• stationery order form
• project cards
– Envelopes (various sizes)
– Letterhead, memorandum, plain & continuation page paper
– Compliment slip
– Telegram Forms
The Office Kit is intended as a start up for new offices, and is designed for offices with 5 international
and 10 local staff (i.e. a standard Sub or Field office). Thus one kit per location should be sufficient, al-
though in larger new offices 2 kits may be necessary. Thereafter procedures for the normal procure-
ment of office supplies should be established.
How to request
The Desk or PCS should submit a request to EPRS by e-mail (HQEM00). Upon approval, EPRS will for-
ward an Emergency Stockpile Release Form (ESF1) to the Certifying Officer (Head of Desk or other au-
thorized signatory). The transfer of appropriate funds to the Central Emergency Stockpile project will
be authorized by the Certifying Officer with availability of such funds being confirmed by DFIS.
352

Emergency Kit for Unaccompanied Children
This kit was developed jointly by UNHCR and UNICEF and is intended to promote early identification,
documentation, and reunification of unaccompanied children. The kit includes the Priority Action Hand-
book, Emergency Registration Books, basic supplies (such as cameras and film) and a kit container.
The Priority Action Handbook is intended as a practical tool for UNHCR and UNICEF staff who are first
on the spot and responsible for launching emergency response programmes. The handbook offers a
checklist of actions to be considered in any emergency, as well as examples of practical tools, coordina-
tion mechanisms, and programme models that have proven to be effective in previous emergencies. A
computer diskette is included to facilitate quick reproduction and modification of generic forms,
guides, and tools.
Emergency registration books are included to promote quick identification and documentation of sepa-
rated children and to serve as a record of what happens to these children over time. Written in straight-
forward language (in French and English), the Registration Books are for use in any place and with any
person who is responsible for caring for separated children. Helpful hints on how to care for infants and
young children and on how to initiate phototracing are also included.
How to request
Ten kits are stockpiled by EPRS at Headquarters. These kits are available on request from the Senior Co-
ordinator for Refugee Children and/or EPRS.
Computer Equipment
A stock of portable and desktop computer equipment, installed with standard UNHCR software, is
maintained by ITTS. Unit value ranges between $ 2,000 and $ 3,000 for a computer, and between $ 500
and $1,500 for a printer. Please check the cost of equipment required with ITTS User Services.
Electrical plugs vary, so it would be prudent to determine the socket type at the destination and take an
adequate supply of electrical adapters.
How to request
Requests for computers or printers should be made directly to ITTS, User Services or HQFOSUP with a
copy to the Desk/Bureaux at HQ indicating the funding source (e.g. admin. or project code). Equipment
will be taken from ITTS buffer stock and replenished from the funds indicated by the Desk/Requesting
Officer. Please note that equipment cannot be released if funds have not been identified by the re-
questing office.
353

Vehicles
A stock of 20 vehicles is maintained for deployment to emergency operations — 15 left-hand drive and
5 right-hand drive in Amsterdam. In addition to these, additional requirements for emergencies can
also be met through loans from regional stocks in various locations and through ex-stock procurement
from manufacturers stockholder.
The model currently in stock is the Toyota Landcruiser MZJ 105RL-GCMRS which has the following speci-
fications:
– Air Conditioner, power steering, radio AM/FM and cassettes, 2 speakers
– 4,200cc Diesel
– 5 speed floor shift
– 6 seater, lateral seats (4 people) back door swing out type
– Tyres: 7.5OR-16-6 Radial Block
– Sub fuel tank, 50L
– Air cleaner cyclone with precleaner
– Speedometer Km/h
– High Altitude Compensator
– Engine Coolant LLC 50PCT
– Double Battery 12V
– Burglar alarm, spare part kits, tool kits, seat belts, etc.
Insurance and UNHCR number plates: STS is now able in certain circumstances to arrange third party in-
surance and UNHCR number plates pending completion of formalities with the authorities concerned so
that UNHCR-owned vehicles can be immediately operational upon arrival in a country. However, this is
not applicable to all countries.
How to request
Requests for the release of items from the Central Emergency Stockpile (CES) should be made by the Bu-
reau through the CES Focal Point in STS and confirmed in writing, preferably by e-mail. After reviewing
the request, STS will initiate form ESF1 which will be forwarded to the Certifying Officer (Head of Desk
or other authorized signatory). The transfer of appropriate funds to the Central Emergency Stockpile
project will be authorized by the Certifying Officer with availability of funds being confirmed by the
DFIS.
Telecommunications Equipment
A stock of telecommunication equipment, adequate for establishing communication links for two emer-
gency operations has been established. This equipment is intended to provide emergency staff with im-
mediate communication links even from the most remote locations.
The stock, which will be replenished as it is deployed, consists of:
– 8 Pactors
– 80 Codans Base/MOB
– 100 VHF Base/MOB
– 300 VHF Handhelds
– 20 VHF Repeaters
– 14 VHF Packet
– 9 SATCOM M
– 4 SATCOM C
– 26 Natel D
– 10 Fax
How to request
Requests for the release of these items should be made in writing to the Telecoms Unit, RTO or HQTU01
and STS with a copy to the Desk/Bureaux at HQ after clearance with EPRS. Replacement costs will be
charged to the relevant programme through the issuance of a Purchase Authorisation by the Desk.
354

Visibility Material
In any emergency operation it is important to consider the value of greater UNHCR visibility. There may
be various reasons for enhanced conspicuousness, the most important of which are:
a) Security (in certain circumstances)
b) Protection (recognition by authorities and asylum seekers)
c) Public Relations (visibility in the media)
UNHCR holds a stockpile of items which could be used for the above purposes. They are listed below:
EPRS will provide, at no charge to a new emergency operation, a start up supply of up to 50 each, of
caps, vests, armbands and T-shirts. EPRS will also provide up to 10 UNHCR flags which are available in
two sizes:
medium 150 cm x 225 cm
large 200 cm x 300 cm
Public Information Section will sell, at cost to the operation, any subsequent need for caps and T-shirts.
BSU will provide:
– identification badges
– UN flags: Car 30 x 50
Convoy 75 x 100
Small 100 x 150
Medium 150 x 225
Large 200 x 300
– UNHCR logo stickers for light vehicles
– extra large logo stickers for trucks
– rolls of scotch tape with UNHCR logo
How to request
Requests for these items should be made directly to the respective sections as appropriate (see above).
For items purchased from PI Section an account code must be provided.
355

Emergency Operations Room
Based on problems experienced in managing past emergency operations at Headquarters, notably the
bottleneck in information flow to and from Headquarters, it was agreed that an Emergency Operations
Room (EOR) should be made available which would be used as a communications and information dis-
tribution centre during the initial stages of an operation. The EOR should be the focal point for:
a) the receipt of all communications related to a particular emergency and
b) the effective distribution of such communications within UNHCR and, when needed, to other agen-
cies.
Thus, all incoming communications relating to the emergency would be routed directly to the EOR. The
EOR should therefore facilitate the organization of a systematic flow of information which could subse-
quently be integrated into the ongoing operations of the relevant Bureau/Desk. It is expected that the
EOR will become operational at the outset of the emergency operation and will remain at the disposal
of the Bureau/Desk concerned for an estimated period of three months.
The EOR is equipped with:
– 2 work-stations (computer equipped)
– telephones, fax machine, e-mail, teleconferencing
– computer link to Telecommunications Unit pactor
– photocopier
– pigeon holes and filing cabinets
– clocks for two time zones
In addition, the EOR may be used as an airlift operation cell and staffed by personnel seconded from
the defence establishments of Governments for the duration of an airlift.
How to request
At the beginning of an emergency operation the Bureau should submit a written request to EPRS asking
for the use of the Room. The Emergency Operations Room will be assigned to the Bureau responsible for
the emergency. At the outset of the operation, ITTS will liaise with the Bureau concerning the installation
of the required communications equipment, dedicated telephone numbers, fax numbers and e-mail ad-
dress. Ideally these numbers should be redeployed from the Bureau so that when the operation is inte-
grated into the ongoing operation they may be “repatriated” and continuity ensured.
The Bureau will take full responsibility for supplies (stationery, photocopy paper, etc.) and running costs
(communications charges, staff costs) during the period it occupies the EOR. It is emphasized that the
EOR will be at the disposal of a given Bureau for the initial stages of an emergency operation only, in
principle, for a maximum period of three months. Thereafter it should be possible to integrate the
emergency operation into the normal activities of the Desk.
Tents
10,000 tents are stockpiled at various locations. UNHCR's standard family tent is a double fly centre pole
tent (4x4 m) with 2 doors and 2 windows and is made of cotton canvas and provided with a ground
sheet. The unit weight including poles and pegs is about 100 kg and the cost USD$ 200-220.
How to request
the request, STS will initiate form SF(1) which will be forwarded to the Certifying Officer (Head of Desk
DFIS.
356

Emergency Health Kit
The kit is designed to meet the needs of a population with disrupted medical facilities in the second
phase of a natural or other disaster, or a displaced population without medical facilities. Its contents are
calculated to meet the needs of a population of 10,000 persons for three (3) months or for 30,000 per-
sons for one (1) month.
THE BASIC UNIT: 10 identical boxes, each 41 kg.
Total: 410 kg = US$ 2194
To facilitate distribution to smaller health facilities on site, the quantities of drugs and medical supplies
in the basic unit have been divided into ten identical units, each for 1,000 persons. The basic unit con-
tains drugs, medical supplies and some essential equipment for primary health care workers with lim-
ited training. Simple treatment guidelines, based on symptoms, have been developed to help the train-
ing of personnel in the proper use of drugs.
THE SUPPLEMENTARY UNIT: 14 boxes (3 boxes of drugs, 5 boxes of infusions, 3 boxes of renewable sup-
plies and 3 boxes of equipment).
Total: 420 kg = US$ 2752
The supplementary unit contains drugs and medical supplies for a population of 10,000 persons for
three months and is to be used only by professional health workers or physicians. It does not contain
any drugs and supplies from the basic units and can therefore only be used when these are available as
well. A manual describing the standard treatment regimens for target diseases, is included in each unit.
How to request
The kits are in stock at supplier’s warehouse in Amsterdam. Requests should be made by the Bureau
through the Desk at HQ with a copy to STS indicating quantity of complete kit, markings needed, proj-
ect to charge.
One complete Emergency Health Kit is a total of 24 boxes for a total weight of 830 kgs, volume 3.40 cbm,
packed on two pallets. Total cost: US$ 4,947 without transport costs. Delivery is within 24/48 hours to
the airport of departure. It must be emphasized that although the standard kit is convenient in the
second phase of an emergency, specific local requirements need to be assessed as soon as possible and
further supplies must be ordered accordingly. STS has signed for a period of one year (1.9.97 to 31.8.98
renewable) a frame agreement for the list of UNHCR Essential Drugs. A request for a reasonable quan-
tity of items listed could be quickly delivered. Please contact STS before ordering.
Blankets
150,000 blankets of various qualities (wool ranging from minimum 30% or minimum 50% are stock-
piled with suppliers in Europe). Additional stocks are available from regional stockpiles.
Blankets are packed in bales of 30 pieces weighing about 48 kg depending on the quality of blanket.
The cost of each blanket ranges from US$ 4.50 to US $5.00 depending on the quality.
How to request
DFIS.
357

Kitchen Sets
30,000 Kitchen Sets are maintained by suppliers in Egypt. There are three types of set:
Type A Type B Type C
1x7 litre cooking pot Same as Type A 1x7 litre cooking pot
1x5 litre cooking pot but does not 5 aluminium bowls
5 aluminium bowls include knives, 5 cups
5 deep aluminium plates forks and bucket. 5 spoons
5 cups The cost is thus
5 knives, forks, spoons reduced.
1 kitchen knife
1 x 15 litre steel bucket
Cost US$ 21.10 Cost US$ 13.60 Cost US$ 10.20
Kitchen sets can be produced at a rate of 20-30 000 per week.
Jerry Cans
50,000 semi-collapsible plastic 10 litre jerry cans are maintained by a supplier in Amsterdam. Jerry cans
are usually packed in cartons of 100 weighing about 42,5 kg. The cost per jerry can is US$ 1.55
Plastic Sheeting
66,000 sheets of plastic are stockpiled at various locations. The sheeting, procured by UNHCR is of wo-
ven high density polyethylene fibre, laminated with low density polyethylene on both sides with a rein-
forced rim and eyelets along the edges. The standard size is 4 x 5 meters. It is blue on one side and
white on the other with the UNHCR logo on both sides. The cost per sheet is US$ 6.75. The same mate-
rial is available in rolls of 4 x 50 m for USD$ 66.00 per roll.
Prefabricated Warehouses
10 prefabricated warehouses are held with various suppliers and others are available from regional
stockpiles.
The warehouse, once erected, is 24 metres long, 10 meters wide, 5.8 meters high at the apex and
3.35 meters high at the side. Each end has an opening allowing through access for heavy vehicles. The
average capacity is 500 tons. The unit cost is approximately US$ 13,000 - 15,000.
How to request
DFIS.
358

Government Service Packages
In a number of major emergencies, Government Service Packages (GSPs) of some form were used: Coali-
tion forces in the Kurdish Operation, Sarajevo airlift in Former Yugoslavia and various governments in
selected sectors for the Rwandese influx. It was during this last operation that the concept was recog-
nised as an exceptional response to complex emergencies and Governments requested UNHCR to take
note of the lessons learned and pursue the development of what then became known as GSPs.
The concept assumes that GSPs are:
– A last resort in exceptionally large emergencies
– Use of military or civil defence assets
– Do not replace the traditional response capacity of NGOs
– Applicable to selected sectors only, where government assets are necessary
– Normally beyond the capacity of usual funding arrangements and thus seen as extra-budgetary
donations in kind
– Self contained in terms of mobilization and operation
– Limited in duration of deployment and thus rapidly replaced by more cost effective arrangements
UNHCR developed 20 GSPs:
Air Operations Cell Borehole Drilling
Strategic Airlift Water Treatment
Theatre Airlift Water Distribution
Airport Ground Handling Water Storage
Warehousing/Storekeeping Latrine Construction
Road Transport Vector Control
Field Hospital Solid Waste Management
Hydrological Survey Waste Water Systems
Water Tanker Operation Site Development
Surface Water Road Construction
How to request
It will normally be clear at the Headquarters level that an emergency is of a magnitude that requires the
mobilization of GSPs. The Desk will contact EPRS and request that the mobilization procedure com-
mence. In coordination with UNOCHA, donor Governments will first be alerted and asked if they are
willing to provide packages. Subsequently, as the requirements become more clear, implementation,
sometimes commencing with a needs assessment mission, will begin. Any direct contact between
UNHCR and the Missions will be handled by Donor Relations and Resource Service Mobilization in
consultation with EPRS and in liaison with UNOCHA.
NOTE: Meanwhile UNOCHA established the Military and Civil Defence Unit (MCDU) which has ex-
panded the list of GSPs (which are called Government Service Modules) and these are to be
available for all agencies. They include the 20 GSPs listed above. The maintenance of GSPs will
be the responsibility of UNHCR or the most appropriate lead agency, while coordination will rest
with UNOCHA.
359

Emergency Capacities of Non Governmental Organisations
In recent years many of UNHCR’s operational partners have taken steps to develop or enhance their
emergency preparedness and response capacities. These are essential elements in complementing
UNHCR’s response to refugee emergencies, since traditionally, UNHCR relies on non governmental
organizations to implement, on its behalf, activities in support of refugees. It is important that these
resources are known and called upon when needed. In order to do this effectively, UNHCR has, since
mid 1996, established a data base which captures the emergency capacity of important NGOs which
work in refugee programmes. The database identifies standby capacities in the following sectors and
holds data on agency policy, financial resources for emergencies, human resources stand-by capacity
and material stockpiles.
Community Services Health/Nutrition
Domestic needs Management
Economic activities Shelter
Education Site Planning and Civil Works
Environmental sanitation Transport/Logistics
Food Water
On the basis of this data base, UNHCR is able to immediately determine the capacities of NGOs and call
on them to cooperate with UNHCR in emergency response for refugee programmes.
How to request
In emergencies, Field Offices or Emergency Response Teams may advise Headquarters of operational
needs to be filled by NGOs. The data base will provide options. Where there is no ERT and country oper-
ations have particular gaps or needs, the Office of the NGO Coordinator should be contacted and given
details for follow-up.
Standby Arrangement for Trucks and Aircraft (EMERCOM of Russia)
Under a Memorandum of Understanding signed with EMERCOM of Russia (State Committee of the
Russian Federation for Civil Defence, Emergencies and the Elimination of the Consequences of Natural
Disasters) UNHCR is provided with priority access to airlift capacity and a trucking fleet maintained by
EMERCOM on a standby basis. These standby capacities include the following:
– Two airfreighters IL-76 TD with a payload of 40 tonnes and cargo hull dimensions of 20 x 3.4 x 3.4
metres.
– At least 15 x 10 metric tonne (6 x 6 or 6 x 4) trucks (Kamaz type) accompanied by fuel tanker, mobile
workshop, escort vehicles and personnel (drivers and coordinators) to man the fleet during the initial
emergency phase and until such time as local capacities can be trained to take over the operation of
the fleet.
The resources can be deployed within 72 hours of receipt of a written request from UNHCR. The mainte-
nance of these capacities on a standby basis is provided at no cost to UNHCR, but the cost of deploy-
ment is charged to the relevant programme.
How to request
The Desk should consult with EPRS and STS on the appropriateness of the EMERCOM capacities for the
specific needs of the operation. Once its deployment is agreed, EPRS will be the focal point for contact
between EMERCOM and UNHCR. UNHCR will advise EMERCOM in writing (copied simultaneously to the
Government of the Russian Federation through the mission in Geneva) of the type of the emergency
operation, location, duration, type and quantity of EMERCOM services, equipment and personnel as
well as the technical specifications of any special equipment required. At the time of deployment a
“Sub-Agreement” will be signed between EMERCOM and the relevant Regional Bureau which incorpo-
rates the actual services to be rendered by EMERCOM and the costs to be borne by UNHCR.
360

Contingency Planning: A Practical Guide for Field Staff
The Contingency Planning Guidelines are designed to assist UNHCR field staff to plan for refugee
related events at country level. These events may include a refugee influx, spontaneous unexpected
repatriation, security problems in refugee camps, natural disasters affecting refugee camps, camp relo-
cation etc. There are 4 sections and 6 Annexes in the Guidelines:
Section 1 – The Purpose: covers the “when” and “why” of contingency planning. It looks at the popu-
lar misconceptions surrounding this activity. It considers the relationship to early warning, operations
planning and needs assessment and identifies indicators which will suggest when it is prudent to initi-
ate the planning process.
Section 2 – The Process: covers the “how” of contingency planning emphasizing the importance of the
process necessary to arrive at an effective plan. It describes an approach which is participatory and on-
going and suggests mechanisms which can be established in-country to update the plan and maintain
the preparedness process.
Section 3 – The Partners: identifies, and considers the role of the various agencies in the planning
process. It is a kind of a checklist to ensure that the appropriate actors are involved at the right stage.
Section 4 – The Plan: sets out a model format for a contingency plan. These Guidelines stress that the
plan is simply a product of the process and as such is constantly changing and requiring update. Never-
theless the plan has an importance as a working tool and thus some guidance on the best approach to
setting out the document is required.
Annexes
A - UNHCR’s Standby Resources D - Example Contingency Plan
B - Early Warning Indicators E - Overhead Transparencies
C - Questionnaire for Sector Planning F - Additional Reading
How to request
Copies of the Guidelines may be requested directly from EPRS.
361

Refugee Registration Package
This package consists of three elements: a Practical Guide for Field Staff, a Registration Kit, and com-
puter software.
The Guide covers UNHCR's registration strategy, and provides practical ideas and tips to staff undertak-
ing refugee registration exercises. In its 110 pages, the Guide describes registration strategies, explains
the phases of registration and explores the various registration scenarios. In doing so, it deals with such
activities as the initial fixing of a population, identifying vulnerable groups, crowd control, equipment
required, estimating populations, protecting data and verification. Maps of typical reception and regis-
tration areas are included as are examples of tokens, cards and forms. The Guidelines were field tested
in 1993 and the first document published and distributed in May 1994.
The Registration Kit is designed for 30,000 refugees (10,000 families), and includes an appropriate sup-
ply of wristbands, fixing tokens, temporary cards, registration cards, control sheets/passenger manifests,
registration forms, Guidelines, code sheets, hole punches for cards, UNHCR caps and marker pens. The
Kit is valued at approximately US$ 11,000.
In conjunction with the standard UNHCR registration form, the Field Based Registration System (FBARS)
has been developed and field-tested. Introduction to the software is supported through, inter alia, re-
gional training activities. The software, specifically designed to handle large caseloads, is fully supported
by UNHCR.
How to request
The Food and Statistical Unit of PCS at Headquarters manages the stocks of Guidelines and Kits. All
requests should be made directly to PCS/FSU. The Software may be requested by contacting PCS or ITTS.
Except in emergency situations, requests should be made well in advance stipulating the estimated num-
ber of persons to be registered. Budgetary allocation will need to be made for the supplies requested.
Additional supplies required which are not in the kits, such as files, megaphones, arm bands, UNHCR
stamps etc. should be budgeted for and requested separately by the Desk to BSU.
Handbook for Emergencies
The Handbook For Emergencies was first published in December 1982 and is available in English,
French, Spanish and Russian. The Handbook is intended as a managers' guide to setting up emergency
operations for large-scale influxes and provides advice in a non-technical manner on how to tackle vari-
ous aspects of emergency response. Managers would need to seek further advise for more technical in-
formation.
The Handbook, which is in a convenient A5 format with 300 pages of text and diagrams, will be useful,
not only for UNHCR staff, but also for government officials and NGO staff.
The chapter headings are as follows:
1. Aims and principles of response
2. Protection
3. Needs assessment and immediate response
4. Implementing arrangements and personnel
5. Supplies and logistics
6. Site selection, planning and shelter
7. Health
8. Food and nutrition
9. Water
10. Sanitation and environmental services
11. Social services and education
12. Field level management
How to request
In principle an adequate supply of the Handbook is available at every UNHCR field location for the use
of UNHCR staff members. It is also available on the UNHCR RefWorld/RefMonde CD-ROM.
The Handbook can be provided to NGOs and local authorities upon request. The sum of $15 per copy is
charged when more than 10 copies are required. When requesting copies the name of the recipient or-
ganization and the intended use of the Handbooks should be specified.
Requests should be made directly to EPRS stating the language required.
362

Opening an Office: Checklist for the Emergency Administrator
The Checklist is intended as a practical tool for UNHCR staff when responding to emergencies, who are
assigned to duty stations where there is no established UNHCR presence or where the existing UNHCR
office requires additional administrative support as a result of a changed refugee situation. However it
is also most useful as a reference tool in established offices, and for administration training purposes.
The Checklist has 3 components all of which are contained in an A4 ring binder:
1. The Checklist: lists most activities requiring attention when establishing a (Branch, Sub or Field) Of-
fice. The list is broken down into 5 main sections:
Premises
Communications and Transport
Personnel, Staff Conditions and Security
Finance, Equipment and Supplies
Filing and Documentation.
The list does not cover administrative procedures and action required for the ongoing needs of the of-
fice but concentrates solely on those matters related to the establishment of an office.
2. Annexes: extracts from existing documentation, which have been included for ease of reference and
are not substitutes for existing manuals and instructions.
3. Computer diskette: contains the format for many forms or documents. These forms or documents can
be copied and amended to suit local needs. The disc also includes a wide range of Printer Action Tables
(PATs) and a standard memo Macro.
One Checklist should be available in all UNHCR Offices. The most recent version, Revision 6, was issued
in March 1998.
How to request
Checklists are available on request from EPRS for new UNHCR offices. Since stocks are limited, please en-
sure that copies are not removed from the field offices.
Commodity Distribution: A Practical Field Guide
This guide outlines the procedures by which UNHCR field staff and operational partners can design and
implement systems for commodity distribution. The field guide points out important issues on distribu-
tion and offers techniques and ideas based on best current practice. First published in June 1997, this
document was produced through a series of consultations with agencies with a long involvement in
commodity distribution, namely the World Food Programme, the Red Cross and Red Crescent Societies,
and NGO implementing partners.
The Commodity Distribution field guide begins by acquainting the reader with a glossary of terms, com-
monly-used acronyms, and a summary of key points covered in the document. An overview of commod-
ity distribution follows with a brief look at definitions, the main actors and their roles, the relationships
between food and non-food items, and programme planning.
Other chapters of the field guide are devoted to the beneficiaries, categories of distribution and how to
select the best for your particular situation, refugee involvement, and commodity distribution manage-
ment. A final chapter addresses special issues in commodity distribution and provides answers to many
of the common questions and problems encountered in the field.
A series of annexes provide (with some explanatory notes) commonly-used monitoring and reporting
forms for both food and non-food item distribution.
How to request
Copies of Commodity Distribution: A Practical Field Guide can be made available by contacting HCDS or
by e-mail at hqcs00@unhcr.ch.
363

UNHCR Emergency Fund
The purpose of the Emergency Fund is to provide:
a) financial resources for assistance programmes for refugees and displaced persons in emergency situa-
tions for which there is no provision in the programmes approved by the Executive Committee; and
b) such additional administrative expenditure resulting from those emergencies as cannot be met from
the Regular Budget, pending action by the Executive Committee or the General Assembly.
The High Commissioner may allocate up to US$ 25 million annually from the Emergency Fund, provided
that the amount made available for any one single emergency shall not exceed US$ 8 million in any one
year and that the Fund will be maintained at not less than US$ 8 million.
The Fund may be reimbursed if sufficient funds to a given Appeal are later received.
How to request
Use of the Emergency Fund must be authorized by the Officers indicated below, subject to prior clear-
ance by the Chief of PCS and the Head of the Funding and Donor Relations Service. Requests for use of
the Emergency Fund are to be submitted to PCS by the Head of Desk or the Chief of Section for projects
in their area of responsibility. The Director of the Regional Bureau or Division will countersign all re-
quests for the use of the Emergency Fund. PCS will attach to all requests for over US$ 2.0 million a status
report on allocations made to date. Copies of all authorizations are to be sent to the High Commis-
sioner's Office.
OCHA Central Emergency Revolving Fund (CERF)
The Central Emergency Revolving Fund (CERF) of the Office of the Coordinator of Humanitarian Affairs
was established in December 1991 to provide funds within the UN system to respond rapidly to emer-
gencies. CERF, which has a target level of US$ 50 million, is financed from voluntary contributions and is
used for cash advances to operational organisations and entities within the system. These advances are
to be reimbursed as a first charge against income subsequently received, usually as a result of consoli-
dated appeals. Under exceptional circumstances, the rules allow for the non reimbursement on alloca-
tions made under the Fund. CERF is managed by the UN Under Secretary General for Humanitarian Af-
fairs.
How to request
The Head of Bureau or Chief of Section should address a memorandum to the High Commissioner,
through the Director of Operational Support & the Head of Funding and Donor Relations Service seek-
ing approval to request an allocation from the CERF. Once agreed, a letter is to be sent from the High
Commissioner to the Under Secretary General for Humanitarian Affairs, requesting an allocation from
the Fund. This letter should:
– define the purpose and objectives of the programme
– specify the amount of money requested
– indicate the initiatives which are being undertaken to raise funds for this programme to allow for
the Fund’s reimbursement.
The USG for Humanitarian Affairs will reply confirming that an allocation can be made available, the
conditions under which it is made and the reporting requirements. These two letters will constitute a
formal exchange between the Organizations. In exceptional circumstances involving particularly urgent
emergencies, the USG may authorize advances prior to the formal exchange of letters. This must how-
ever be followed with a formal exchange within 30 days.
364
Amount Officer designated by Alternate
the High Commissioner
Below US£ 2.0 million Director, Division of 1. Deputy High Commissioner
Operational Support 2. Officer in Charge
Equal or above High Commissioner 1. Deputy High Commissioner
US£ 2.0 million 2. Offier in Charge

Distance Learning Modules
Beginning in early 1998, EPRS will be pilot testing two distance learning modules on the UNHCR Intra-
Net. These self-study courses follow and complement the other training and capacity-building initiatives
described elsewhere in this catalogue.
The first two modules will cover two critical aspects of emergency preparedness and response: contin-
gency planning and operations planning. EPRS plans to make these courses first available to staff either
electronically or in the conventional paper format. At a later date, operational partners and/or other
UN agencies will be able to access the course materials.
This distance learning initiative is carried out in collaboration with the University of Wisconson-Disaster
Management Center who will administer the course on behalf of UNHCR. This course has the added ad-
vantage of offering credits towards the UW’s Disaster Management Diploma Program.
How to request
Look for a formal announcement on the opening of this course. All details on participation in the
course will be covered in this announcement.
Emergency Management Training Programme (EMTP)
The first Emergency Management Training Programme (EMTP) Workshop was held in 1985. In the first
12 years, over 1,500 staff members from UNHCR, NGOs, Governments and other UN agencies have par-
ticipated in the EMTP. The courses are normally geared to mid-career managers and support staff
preferably with some emergency/field experience. The objectives of the programme are to acquaint the
participants with the purpose and goals of emergency management, illustrate the needs for general
management skills and demonstrate specific applications of emergency management skills to priority
areas such as planning, logistics, health, shelter and nutrition, as well as to offer operational partners
the opportunity to exchange experience and lessons learned.
While courses were initially held at the University of Wisconsin at Madison USA they have, since 1992,
been organized on a regional basis. The intention is to add a regional focus to the training and discus-
sions. Three courses are organized each year. Each course normally lasts 11 days and is attended by some
35 participants. In addition to the standard lecture format, training methods include case studies, prob-
lem solving exercises, group discussions, films, a review of current disaster literature and sometimes field
visits. Each course includes a one day simulation of a refugee emergency.
Since 1993 courses have been held in the following locations:
Botswana (Gaberone) Kyrgzstan (Bishkek)
Ethiopia (Addis Ababa) Nepal (Katmandu)
Ghana (Accra) Senegal (Dakar)
Guinea (Conakry) Thailand (Bangkok)
Jamaica (Kingston) Turkey (Ankara)
Jordan (Amman) Venezuela (Caracas)
Tanzania (Dar-es-Salaam) Japan (Tokyo)
How to request
Prior to each course, EPRS will decide on the participating countries and the number of UNHCR, NGO,
government and other UN participants from each country. UNHCR field offices will normally propose
the participants within these categories. EPRS may also identify a small number of participants from
outside the region, from the headquarters of NGOs or UN agencies. Agencies and individuals are invited
to write to EPRS to express their interest in participating in future courses. While every effort will be
made to accommodate such requests, the demand is high and not all requests can be met.
365

Workshop on Emergency Management (WEM/ERT)
The Workshop on Emergency Management (WEM/ERT) is an internal UNHCR Workshop for members of
the Emergency Response Team (ERT) Roster members. The pilot Workshop was held in October 1993;
WEM is now organized on a regular basis in March and September each year.
The primary aim is to prepare ERT Roster members for deployment. The Workshop is highly participa-
tory, focusing on providing practical tips, tools and techniques to equip staff in managing emergency
teams or participating as team members in emergency/repatriation operations. It has a more specific fo-
cus than the EMTP, and while prior participation in the EMTP is not a prerequisite, it may be an asset.
The 3 main themes of the Workshop are:
1 managing your role
2 managing relations
3 managing oneself
5 stages of emergency deployment are covered:
1 pre-deployment
2 arrival
3 team building & delivery
4 handover
5 return
Workshops are held near Geneva for around 28 participants.
The timing of the Workshops coincides with the beginning of the six month term of the new ERT roster,
currently April and October of each year. The course is facilitated by an external consultant and nor-
mally at least two EPROs act as resource persons.
How to request
Since participation in the Workshop is dependent on membership of the ERT it is first necessary to be
placed on the ERT roster [see section on Human Resources]. All ERT members should attend the WEM.
Targeted Training
EPRS complements its two core training activities — the EMTP and the WEM — by providing support to
ad hoc emergency training of three general kinds:
a) Country or Region specific courses with a particular focus, for example contingency planning.
b) Workshops for a specific target audience such as training for external standby staff from agencies
such as the Nordic Refugee Councils, Redda Barnen etc., as well as for staff at HQs (WEM/HQs).
c) Emergency courses organized locally by UNHCR Branch offices. For these local initiatives, EPRS is un-
able to provide funds or resource persons but can offer guidance on course outline and materials to
assist in the preparation of training sessions.
d) Special seminars for senior managers on Emergency Management (Advanced Emergency Manage-
ment Seminar (AEMS)).
How to request
Training requests will normally originate from field offices. Where forward planning is possible, the
training sessions should be incorporated into the annual training plan. Where sudden or changed cir-
cumstances are the basis for a training need, a submission should be sent to EPRS through the relevant
Desk. It should once again be stressed that in doing so, one should not assume that EPRS can provide re-
source persons for such training.
366

CONTENTS
Table 1 Key Emergency Indicators
Table 2 Public Health Emergency: Major Killers
Table 3 Common Health Problems
Table 4 Screening of New Arrivals – Reception Activities
Table 5 Approximate Staffing Levels for Refugee Health and
Sanitation Services for a Population of 10-20,000
Table 6 Site Planning Figures for Emergencies
Table 7 The Size of Things
Table 8 Capacities and Characteristics of Various Aircraft
Table 9 Capacities of Various Surface Transport Means
Table 10 Conversion Factors
Table 11 Radio Communications, Phonetic Alphabet
Table 12 Typical Services and Infrastructure Requirements for
Refugee Camps
369

370
Crude Normal rate among a settled population 0.3 to 0.5/10,000/day
Mortality rate Emergency program under control <1/10,000/day
(CMR) Emergency program in serious trouble >1/10,000/day
Emergency: out of control >2/10,000/day
Major catastrophe >5/10,000/day
Mortality rate Normal rate among a settled population 1.0/10,000/day
among children Emergency program under control <2.0/10,000/day
under 5 years old Emergency program in serious trouble >2.0/10,000/day
(U5MR) Emergency: out of control >4.0/10,000/day
Clean water Minimum survival allocation 7 liters/person/day
Minimum maintenance allocation 15-20 liters/person/day
Food Minimum food energy requirement for a 2,100 kcal/person/day
population totally dependant on food aid
Nutrition Emergency level: >15% of the population under five years old
below 80% weight for height
or >10% of the population under five years old
below 80% weight for height together with aggravating
factors e.g. epidemic of measles,
crude mortality rate > 1/10,000/day
Measles Any reported cases. 10% or more unimmunized in the 6 months to 5 years age
group
Respiratory Any pattern of severe cases
infections
Diarrhoea Any pattern of severe cases
Appropriate Protection from wind, rain, freezing temperatures, and direct sunlight are
shelter minimum requirements
Minimum shelter area 3.5 sq. m/person
Minimum total site area 30.0 sq. m/person
Sanitation Lack of organized excreta and waste disposal. Less than 1 latrine cubicle per
100 persons
Table 1 – Key Emergency Indicators
Measles
Diarrhoeal Diseases
Acute respiratory infection (ARI)
Malaria
Malnutrition
A significant increase of incidence of these
conditions should prompt an immediate
response (or the reporting of just one case
of measles)
Table 2 – Public Health Emergency: Major Killers

371
Disease Major contributing factors Preventive measures
Diarrhoeal Overcrowding q adequate living space
diseases Contamination of water q public health education
and food q distribution of soap
Lack of hygiene q good personal and food hygiene
q safe water supply and sanitation
Measles Overcrowding q minimum living space standards as defined
Low vaccination coverage in chapter on site planning
q immunization of children with distribution of
Vitamin A. Immunization from 6 months up to
15 years (rather than the more usual 5 years)
is recommended because of the increased risks
from living conditions
Acute Poor housing q minimum living space standards and
respiratory Lack of blankets and clothing q proper shelter, adequate clothing,
infections Smoke in living area sufficient blankets
Malaria New environment with q destroying mosquito breeding places, larvae and
a strain to which the adult mosquitoes by spraying. However the success
refugees are not immune of vector control is dependent on particular mos-
Stagnant water which quito habits and local experts must be consulted
becomes a breeding area q provision of mosquito nets
for mosquitoes q drug prophylaxis (e.g. pregnant women and
young children according to national protocols)
Meningococcal Overcrowding in areas where q minimum living space standards
meningitis disease is endemic (often has q immunization only after expert advice when
local seasonal pattern) surveys suggest necessity
Tuberculosis Overcrowding q minimum living space standards (but where it is
Malnutrition endemic it will remain a problem)
High HIV prevalence q immunization
Typhoid Overcrowding q minimum living space standards
Poor personal hygiene q safe water, proper sanitation
Contaminated water supply q good personal, food and public hygiene and
Inadequate sanitation public health education
WHO does not recommend vaccination as it offers
only low, short-term individual protection and little
or no protection against the spread of the disease
Worms Overcrowding q minimum living space standards
especially Poor sanitation q proper sanitation
hookworms q wearing shoes
q good personal hygiene
Scabies1
Overcrowding q minimum living space standards
Poor personal hygiene q enough water and soap for washing
Xerophthalmia Inadequate diet q adequate dietary intake of vitamin A
Vitamin A Following acute prolonged If not available, provide vitamin A fortified food
deficiency infections, measles and If this is not possible, vitamin A supplements
diarrhoea q immunization against measles. Systematic
prophylaxis for children, every 4 - 6 months
Anaemia Malaria, hookworm, poor q prevention/treatment of contributory disease
absorption or insufficient q correction of diet including food fortification
intake of iron and folate
Tetanus Injuries to unimmunized q good first aid
population q immunization of pregnant women and subsequent
Poor obstetrical practice general immunization within EPI
causes neo-natal tetanus q training of midwives and clean ligatures
scissors, razors, etc.
Hepatitis Lack of hygiene q safe water supply
Contamination of food and q effective sanitation
water q safe blood transfusions
STD’s/HIV Loss of social organization q test syphilis during pregnancy
Poor transfusion practices q test all blood before transfusion
Lack of information q ensure adherence to universal precautions
q health education
q availability of condoms
q treat partners
Table 3 – Common Health Problems
1
Scabies: skin disease caused by burrowing mites

372
a) HEALTH SCREENING
Nutritional screening Children 1 to under 5 years:
Measure the mid-upper arm circumference (MUAC).
Any children with MUAC below 12.5 cm should be
immediately referred to health or nutrition services for
weighing and measuring and for nutritional assistance
if required.
Measles immunization Children aged 6 months to 12 (or even 15) years:
Immunize entire group and issue "Road to Health"
or other immunization record card.
Note: It is often inpractical to vaccinate at the same
time as screening. However screening could be used to
evaluate the vaccination coverage.
Vitamin A prophylaxis Given along with measles vaccine, but should not delay
measles vaccination if vitimin A is not available.
Basic curative care As required:
On-site first-line care for dehydration, respiratory
infections, presumed malaria, trauma, and other life
threatening conditions.
Referral to existing health care facilities.
b) DEMOGRAPHIC SCREENING
Population estimation Everyone:
Estimate total population broken down by sex and age
(0-4, 5-14, 15-44, and 44 years and over) Estimate
numbers of vulnerable persons such as children up to
5 years old, pregnant/lactating women, handicapped,
female heads of households, single women, and
unaccompanied minors.
Table 4 – Screening of New Arrivals - Reception Activities
Community Health Worker 10-20
Traditional Birth Attendant 6-10
Public Health Nurse 1
Clinic Nurses Midwives 3-4
Doctors/Medical Assistants 1-3
Pharmacy Attendant 1
Laboratory Technician 1
Dressers/Assistants 10
Sanitarians 2-4
Sanitation Assistants 20
Table 5 – Approximate Staffing Levels for Refugee Health and Sanitation
Services for a Population of 10-20,000

373
RESOURCE HOW MUCH YOU WILL NEED
Land 30 - 45 m2
per person
Sheltered space 3.5 m2
per person
(tents, or other structures)
Fire break space A clear area between shelters 50 m wide should be provided for
every 300 m of built-up area.
A minimum of 1-1.5 m should be provided between guy-ropes
of neighboring tents on all sides
Roads and walkways 20-25% of entire site
Open space 15-20% of entire site
and public facilities
Environmental sanitation 1 latrine seat per 20 people or ideally 1 per family sited not
farther than 50 m from user accommodations and not nearer
than 6 m.
1 x 100 liter refuse bin per 50 people
1 wheelbarrow per 500 people
1 communal refuse pit (2 m x 5 m x 2 m) per 500 people
Water 15 - 20 liters per person per day of clean water
Tap stands 1 per 200 persons sited not farther than 100 m from user
accommodations
Warehouse space For food grains in bags, stacked 6 m high allow 1.2 m2
of floor
space per tonne
Food 2,100 kcal/person/day
This will require approximately 36 metric tonnes/10,000 people/
week of food assuming the following daily ration:
350-400 g/person/day of staple cereal
20-40 g/person/day of an energy rich food (oil/fat)
50 g/person/day of a protein rich food (legumes)
Table 6 – Site Planning Figures for Emergencies

374
Commodity Approximate Standard package Typical maximum
volume per ton stacking height
(m3/1,000kg)
Water 1 none n/a
Food grains/beans 2 50 kg bag 20-40 bags
Flour and blended foods 2 25 kg bag 20-30 bags
DSM in bags 2.4 25 kg bag 20-30 bags
DSM in tins inside cartons 4 20 kg/carton 8 individual cartons
4 tins/carton or 20 if palletized
Edible oil in tins inside 2 25 kg/carton 8 individual cartons
cartons 6 tins per carton or 20 if palletized
Oil in drums 1.4 200 liter drum 2 drums upright with
wood between the
rims or 3 drums on
their sides
ORS 2.4 35 kg carton 3-4 m
Mixed drugs 3.5 45 kg carton 3-4 m
Clinic equipment and 4.5 35-50 kg carton 3-4 m
teaching aids
Kitchen utensils 5 35-40 kg cartons 3-4 m
Family tents 4.5 35-60 kg/ unit 4.5 m *
Compressed blankets 4.5 70 units/bale 4.5 m *
85 kg/bale
Loose blankets 9 unit 3-4 m
Table 7 – The Size of Things
* where equipment for stacking allows

375
Aircraft make or type Volume* Weight* Required* Notes
capacity capacity runway
in m3
in kg in m
Antanov AN-12 97 20,000 1,800
Antanov AN-124 900 120,000 3,000
Boeing B.707/320C 165 36,000 2,100
Boeing B.747 460 100,000 3,000
DC-3 21 3,000 1,200
DC-6 80 11,000 1,500
DC.8/63F 302 44,000 2,300 "stretch" version
DC.10/30F 412 66,000 2,500
Fokker F.27 65 5,000 1,200
Hercules L.100-30 120 15,000 1,400 Ramp for trucks,
can land on earth/grass
airstrips
Ilyushin IL-76 180 40 1,700
Pilatus Porter 3 950 120 Small door
Skyvan 22 2,100 500 Ramp: can take Land
Rover
Transall 140 17,000 1,000 Ramp for trucks
Twin Otter 12.4 1,800 220 Small door
Table 8 – Capacities and Characteristics of Various Aircraft
*Note that the minimum length of runway required and the maximum load capacity both depend on
the altitude of the airport and the temperature. Capacity is reduced for long distances as more fuel must
be carried. Carrying capacity will also vary with the actual configuration of the aircraft.
Carrier Type volume weight
capacity in m3
capacity in kg
Standard railway car 52 30,000
Standard sea/land container – 20ft/ 6.1 m 30 18,000
Standard sea/land container – 40ft/12.2 m 65 26,000
Large lorry and trailer Varies 20-30,000
Large articulated lorry Varies 30-40,000
Medium lorry Varies 5-8,000
Long wheel base Landrover or pickup Varies 1,000
Typical water tanker 8 8,000
Hand drawn cart Varies 300
Camel Varies 250
Donkey Varies 100
Bicycle Varies 100
Table 9 – Capacities of Various Surface Transport Means

376
To convert from To Multiply by
Length
Yards (1 = 3ft = 36 inches) Metres 0.91
Metres (1 = 100 cm) Yards 1.09
Miles (1 = 1,760 yds) Kilometres 1.61
Kilometres (1 = 1,000 m) Miles 0.62
The international nautical mile = 6,076 feet = 1.825 km
Area
Yards2
(1 = 9 ft2
) Metres2
0.84
Metres2
(1 = 10,000 cm2
) Yards2
1.20
Acres (1 = 4,840 yd2
) Hectares 0.41
Hectares (1 = 100 acres = 10,000 m2
) Acres 2.47
Miles2
(1 = 640 Acres) Kilometres2
2.59
Kilometres2
(1 = 100 ha) Miles2
0.39
Volume
US gallons UK gallons 0.83
UK gallons US gallons 1.20
US (UK) pints Litres 0.47 (0.57)
Litres US (UK) pints 2.11 (1.76)
US (UK) gallons (1 = 8 pints) Litres 3.79 (4.55)
Metres3
Yards3
1.31
Yards (1 = 27 ft3
) Metres3
0.77
Weight
Ounces (oz) Grams 28.35
Grams Ounces 0.035
Pounds (lb, 1 = 16 oz) Kilos 0.454
Kilos (kg, 1 = 1,000 g) Pounds 2.21
US short tons (1 = 2,000 lb) Metric tons 0.91
US long tons (= UK tons,1 = 20 hundredweight (CWT) Metric tons 1.02
= 2240 lb)
Metric tons (MT, 1 = 1,000 kg) US short tons 1.10
US long tons UK tons 0.98
Temperature
Centigrade Fahrenheit 1.8 and add 32
Fahrenheit Centigrade Subtract 32 and
multiply by 0.56
Table 10 – Conversion Factors
Weight of water (at 16.7° C, 62° F)
1 litter = 1kg; 1 US gal = 8.33 lb;
1 UK gal = 101 lb; 1 ft3
= 62.31 lb

377
Letter Phonetic Equivalent
A Alpha
B Bravo
C Charlie
D Delta
E Echo
F Fox-trot
G Golf
H Hotel
I India
J Juliet
K Kilo
L Lima
M Mike
N November
O Oscar
P Papa
Q Quebec
R Romeo
S Sierra
T Tango
U Uniform
V Victor
W Whiskey
X X-Ray
Y Yankee
Z Zulu
Table 11 – Radio Communications, Phonetic Alphabet
1 latrine per 1 family (6 - 10 persons)
1 water tap per 1 community (80 - 100 persons)
1 health centre per 1 camp (of 20,000 persons)
1 hospital per up to 200,000 persons
1 school per 1 sector (5,000 persons)
4 commodity distribution sites per 1 camp module (20,000 persons)
1 market per 1 camp module (20,000 persons)
2 refuse drums per 1 community (80 - 100 persons)
Table 12 – Typical Services and Infrastructure Requirements for Refugee Camps

CONTENTS
Memoranda of Understanding with:
1. UNDP (1997)
2. UNICEF (1996)
3. WFP (1997)
Note: These Memoranda of Understanding are updated from time to time. The copies in this
handbook are valid at the time of going to press. The latest version of these Memoranda
should always be consulted.
379

FRAMEWORK for OPERATIONAL COOPERATION
between UNHCR and UNDP
I. INTRODUCTION
1. The High Commissioner for Refugees (hereinafter referred to as UNHCR) and the Administra-
tor of the United Nations Development Programme (hereinafter referred to as UNDP) have agreed
that existing agreements on cooperation between their two organizations need revision taking into
consideration the changing operational requirements of humanitarian assistance and development
cooperation.
2. Building upon the experience gained through implementation of the agreement of Novem-
ber 1987 on “cooperation with regard to development activities affecting refugees and returnees”
and joint work programmes subsequent to this agreement, the present framework affirms the com-
mitment of both parties to promote a fresh culture of institutional collaboration, with particular
attention to countries in special circumstances where a humanitarian crisis may be impending, is
ongoing, or abating within a phase of recovery.
3. This Framework recognizes the respective mandates and responsibilities of each organization,
and the need to build on the comparative advantages of each in arrangements for cooperation that
provide added value both for the beneficiaries and for the discharge of these mandates and respon-
sibilities. In this context, UNDP shall associate the special funds and programmes administered under
its authority in support of the Framework.
4. In working to give effect to the present agreement, UNHCR and UNDP seek to reaffirm their
support to United Nations system collaboration as provided for in General Assembly resolutions as
well as decisions of the governing bodies of the two organizations. Mindful of the attributions of
other organizations of the United Nations system, and in particular the members of the Inter-
Agency Standing Committee (IASC), UNHCR and UNDP will support the mechanism for inter-agency
coordination provided by the IASC, under the leadership of the Emergency Relief Coordinator (ERC).
UNDP and UNHCR will also actively support and coordinate their efforts within the relevant frame-
works established by the Administrative Committee on Coordination (ACC), and the Consultative
Committee on Programme and Operational Questions (CCPOQ). At the country level, UNDP and
UNHCR will promote and support the efficient and effective utilization of the United Nations resi-
dent coordinator system as well as inter-agency mechanisms such as the United Nations Security
Management Team and the United Nations Disaster Management Team.
II. OBJECTIVES
5. The principal objectives of collaboration between UNHCR and UNDP shall be to:
a) enhance early warning of the possible displacement of populations which might lead to
refugee outflows with a view to devising early and timely preventive/remedial responses
to critical problems, in both home and potential asylum countries;
b) address the negative effect of large inflows of refugees on hosting areas, taking into
account their impact on local economic, social and environmental resources;
c) promote, at the community level, post-conflict recovery, peace-building and reconciliation
in war-torn countries with large displaced populations; ensure that the reintegration of re-
turnees is planned and supported in an effective and well-coordinated manner, providing
sustainable basic services and economic opportunities, thereby reinforcing the linkages be-
tween the needs of returnees and other groups in the areas of return;
d) foster an early and smooth phase-out of humanitarian assistance in favour of sustainable
basic services and local development in areas that have suffered from severe damage and
dislocation as a result of conflict; and
e) work jointly to mobilize national and international resources for measures designed to
attain the above objectives.
380

III. BASIC PRINCIPLES
6. The following basic principles shall guide UNHCR/UNDP cooperation:
a) Functional: cooperation shall be based on a pragmatic, mutual understanding of the con-
cerns and mandates of the two organizations; both agencies have responsibility to ensure
that their headquarters and country staff are aware of available opportunities for cooper-
ation, its scope and orientation;
b) Complementary: country representatives of both organizations with the support of their
respective headquarters, are encouraged to devise creative, complementary and mutually
reinforcing operational initiatives at the country level;
c) Decentralized: flexible and practical operational procedures, with adequate delegated au-
thority to country representatives for planning and management, will ensure that oppor-
tunities for cooperation are seized and allow for the necessary operational variations;
d) Verifiable: the cooperation shall yield tangible results to beneficiaries, with a demon-
strated added value to the work of both organizations in pursuance of the objectives
stated in this framework; and
e) Cost-effective: the cooperation shall be managed in a cost-effective manner with adminis-
trative costs justified against results.
IV. SCOPE OF COOPERATION
7. The scope of cooperation will vary depending on the operational context. Collaboration to
cope with emergency calls for a different set of responses than those that may be needed to help a
country recover from crisis. The elements of cooperation that are identified will be supported by
management tools which will be jointly developed as required.
8. UNHCR and UNDP will aim to harmonize humanitarian and development action at three sepa-
rate but interrelated levels:
a) Country specific: through situation-specific operational arrangements developed on a case
by case basis in the light of the opportunities and constraints encountered in each context;
b) Inter-country: through operational cooperation covering both asylum countries and coun-
tries of origin of the refugees; and
c) Thematic: through a policy dialogue aimed at promoting conceptual and operational links
between relief and development.
V. AREAS AND INSTRUMENTS OFFICES OPERATIONAL COOPERATION
9. In order to advance and facilitate operational cooperation, UNHCR and UNDP will:
a) share information on the possible or actual movement of refugees, displaced persons and
returnees, consult each other throughout the process of planning and implementing their
respective programmes and jointly evaluate activities related to prevention, impact on
host communities and reintegration;
b) jointly participate in the formulation of a strategic framework for recovery and the United
nations Country Strategy Note (CSN), ensuring that they properly reflect viable solutions to
humanitarian crisis; UNHCR and UNDP shall align their prevention and rehabilitation assis-
tance with the basic policy and assistance principles laid down in these frameworks;
c) undertake joint planning and programming missions aimed at strengthening the opera-
tional linkages between the two agencies in all work concerned with prevention, host
country impact and reintegration; ensure that needs assessment is carried out in consulta-
tion with refugee leaders, communities in areas of return where appropriate, local govern-
ment bodies, NGOs and other civil society organizations;
d) agree on the form and content of consultations to be held with national authorities in or-
der to give effect to joint strategies and to implement programmes in the above-men-
tioned areas;
381

e) jointly invite donors, United Nations system partners and NGOs for periodic briefings and
consultations on specific joint strategies, programmes and projects;
f) establish a joint approach to the effective utilization of United Nations Volunteers, under
which initial assignments to UNHCR activities may be followed by a transfer to UNDP field-
based programmes;
g) coordinate their approach to the development of civil society and notable with respect to
the role of international NGOs and to capacity-building among national NGOs;
h) ensure, where appropriate and when resource availability permits, that UNDP support to
local capacity building and UNHCR-funded local settlement and reintegration projects are
mutually supportive and sustainable;
i) collaborate in joint reporting to the national authorities and institute periodic briefings to
local donor representatives on programme progress and constraints, policy and sectoral
issues pertaining to the orientation of aid for prevention, post-conflict recovery and peace-
building, so as to generate understanding and additional support in the interest of the
overall effort, and
j) collaborate in identification of priority needs addressing the development dimension of
emergencies which are complementary to UNHCR humanitarian assistance and which are
eligible for financing from UNDP’s TRAC line l.1.3 resources.
10. Specific situations of cooperation are indicated below for the three principal operational
areas, the first aiming at preventing a displacement crisis, the second at responding to the refugee
impact on hosting areas, and the third at the reintegration of returnees and rehabilitation of com-
munities and areas of return.
Prevention
11. UNHCR and UNDP shall:
a) given the complexity of early warning analysis, agree on a limited set of simple base-line
indicators, including push and pull factors, in areas jointly identified as high risk situations;
such indicators should be monitored on a continuous basis;
b) share assessments of risks of impending forced population displacement;
c) develop strategies in countries identified as being at risk, so as to address the causes of
potential displacement without jeopardizing the fundamental right of persons to seek
and enjoy asylum;
d) agree on joint initiatives to halt and reverse the deterioration of high risk situations, with
clearly established roles and responsibilities, based on their mandates and comparative ad-
vantages, specifically in regard to resource and programme delivery requirements;
e) identify ways and means to strengthen local capacities for crisis management and mitiga-
tion, including conflict and dispute settlement at the local level, strengthening of judicial
systems and the human rights regime, to the extent humanitarian concerns are affected;
f) where necessary, seek regional approaches to preventive action that address potential
displacement; and
g) where preventive action of a political nature may be required, jointly consult the UN
Department of Political Affairs (DPA).
Refugee impact on hosting areas
strengthen the operational linkages between refugee aid and development by jointly devel-
oping, in cooperation with national authorities and local communities, a comprehensive pro-
gramme for support to receiving areas affected by massive influx of refugees and strengthen-
ing local and regional capacities to cope with and recover from refugee crisis.
382

13. The UNHCR Representative shall:
bring to UNDP’s attention any adverse consequences of refugee concentrations on local com-
munities.
14. The UNDP Resident Representative shall:
in consultation with UNHCR and the national authorities, propose and formulate programmes
designed to meet the special requirements of local populations in areas exposed to the large-
scale inflow of refugees including rehabilitation needs after the repatriation of the refugees.
Reintegration and rehabilitation
a) strengthen the operational linkages between the two organizations to ensure that the
reintegration of returning refugees and the rehabilitation of receiving areas including ba-
sic services, are undertaken in a sustainable manner;
b) seek a common and mutually reinforcing approach to reintegration support in returnee
areas, and agree upon appropriate action in relation to issues of conflict-resolution and
sustainable development, aiming at cost-effectiveness in interventions, efficiency in coordi-
nation as well as added-value through the combined humanitarian and development effort;
c) in consultation with local authorities and implementing partners, jointly assess the human
development situation in areas of reintegration, including identification of constraints to
reintegration such as mines, land and property rights and opportunities for reintegrating
skilled returnees in public services such as health and education; UNHCR shall make avail-
able information on the extent to which skills development has taken place in refugee
camps prior to repatriation; and
d) coordinate their approach to and agree on division of responsibilities in relation to the
reintegration needs of internally displaced persons in those cases where UNHCR is working
with internally displaced persons.
16. The UNHCR Representative shall:
a) invite UNDP to participate in the initial situation analysis and needs assessment of areas to
which refugees are expected to return. The joint assessment shall serve as a basis for collab-
orative action to facilitate reintegration focused on short and medium-term impact; and
b) ensure that UNHCR’s reintegration strategy is developed with substantive inputs from
UNDP, so as to enhance the development impact of UNHCR’s initial reintegration support
(including Quick Impact Projects, (QIPs)) and ensure its sustainability.
17. The UNDP Resident Representative shall:
a) undertake an analysis of local development management capacity, including the allocation
of local resources for priority needs and for a sustained recovery;
b) consult with UNHCR in the identification and formulation of UNDP development activities
so as to reflect appropriate follow-up and/or linkages with reintegration assistance; and
c) liaise with UNHCR on its approach to the reintegration of refugees, ex-combatants and in-
ternally displaced persons, so as to develop a common understanding of the nature and
level of support required for the community reinsertion of the different categories of such
populations where UNHCR is working with such populations.
VI. RESOURCE MOBILIZATION
18. Programmes aiming at the prevention of refugee situations, and sustainability of projects
targeting host country communities, reintegration action and area development schemes require
substantial additional and complementary resources to those provided under UNHCR’s core funds
or to resources available under UNDP’s country programmes and TRAC allocations, including TRAC
line l.1.3, assigned for “Countries in Special Development Situations”.
19. To the extent feasible, when seeking extra-budgetary resources for the purposes of such pro-
grammes, the two agencies shall jointly approach donors as early as possible on the basis of agreed
arrangements for implementation and programme delivery.
383

a) consult with the government and actively use fora such as Round Table and Consultative
Group Meetings, as well as regional or local donor meetings, to attract and mobilize re-
sources for jointly identified programmes in the area of displacement prevention, impact
on refugee host communities and reintegration; and
b) cooperate actively in the elaboration of Inter-Agency Consolidated Appeals and possible
future expansion, and ensure that the activities contemplated are consistent with the over-
all strategy of external support.
VII. IMPLEMENTATION, MONITORING AND FOLLOW-UP OF THE FRAMEWORK
21. In order to implement joint strategies of assistance to countries in special circumstances, as
outlined in the preceding sections, mechanisms and procedures for regular and close consultation
between the two agencies need to be systematized and reinvigorated, at headquarters and at the
country level.
22. UNHCR and UNDP shall carry out joint reviews and lessons learnt exercises both at headquar-
ters and country level as a general feature of their cooperation. The two organizations shall apply
the findings for the further refinement of collaborative instruments and activities and shall coordi-
nate and, as appropriate, collaborate in the development of joint training programmes for field-
based management staff. UNHCR and UNDP shall also seek to contribute to the development of,
and participate in, inter-agency training programmes such as those provided by the ILO Turin Centre
on United Nations system coordination, the Disaster Management Training Programme (DMTP) and
the United Nations Staff College Project.
23. UNHCR and UNDP shall work towards a common approach to conditions of service, security
and welfare of field personnel and shall arrange for the exchange of field staff through loans and
secondments, bringing the mutual experience of each organization to bear on the activities of the
other.
at the country level
a) appoint a senior staff member within each office to act as focal point for the implementa-
tion of the Framework at the country level and, as appropriate, to support sub-regional
and inter-country initiatives undertaken with the Framework. The focal points shall oper-
ate as a team and co-opt such other agency staff in their work as the situation may re-
quire, reporting jointly to the UNDP Resident Representative and the UNHCR Representa-
tive on a regular basis;
b) develop a joint operational plan of action to implement the Framework in the context of
country-specific requirements and agree on task management arrangements for the effec-
tive formulation, implementation and monitoring of joint endeavours;
c) in support of the above and as warranted, establish joint offices in areas of repatriation to
facilitate coordination of initiatives and the efficient transition of operations between the
two organizations in support of sustainable area-based reintegration programmes;
at the headquarters level
d) conduct an annual senior level meeting to consider and provide guidance on general pol-
icy issues the inter-country ramifications of refugee displacement, and the implications of
any joint initiatives in the field of prevention and reintegration;
e) conduct quarterly meetings of the UNHCR /UNDP Working Group to review issues of com-
mon concern regarding operational collaboration and to prepare the annual senior-level
meeting; and
f) establish focal points within each organization to jointly take stock of achievements and
constraints, to identify opportunities for collaboration and propose initiatives in this re-
gard, to support country-level formulation and implementation of an operational plan of
action and to monitor progress in implementing the present agreement.
384

VIII. VALIDITY
25. This Framework shall become valid from the date of its signature. It will be the subject of a
general review and evaluation in December 1998.
26. This Framework supersedes the agreement of November 1987 entitled “UNHCR/UNDP Cooper-
ation with Regard to Development Activities Affecting Refugees and Returnees”.
27. Provisions previously agreed between UNHCR and UNDP relating to financial and personnel
arrangements will remain valid until such time as they may be amended by separate agreements.
Geneva, 10 April 1997
James Gustave Speth Sadako Ogata
Administrator of the United Nations United Nations High Commissioner
Development Programme for Refugees
385

MEMORANDUM OF UNDERSTANDING between
United Nations High Commissioner for Refugees (UNHCR) and
United Nations Children’s Fund (UNICEF)
I. INTRODUCTION
1. This Memorandum of Understanding (MOU) between the United Nations High Commissioner
for Refugees (UNHCR) and the Untied Nations Children’s Fund (UNICEF) is aimed at encouraging and
facilitating systematic, predictable, cooperative action between the two organizations. It seeks to
build on the recognized comparative advantages of each organization and to establish operational
modalities of cooperation which result in “value-added” elements.
2. Underlying this MOU is the recognition of the respective mandates and responsibilities of each
organization.
3. UNHCR and UNICEF agree that their joint and separate actions on behalf of children (whether
with refugee, displaced or returnee populations, as well as local populations affected by the pres-
ence of displaced persons or refugees), shall be based upon principles contained in the Convention
on the Rights of the Child, in international instruments governing the rights of refugees and in
other human rights instruments, as well as upon the related policies enunciated by the Executive
Committee of the High Commissioner’s Programme and the UNICEF Executive Board.
II. SCOPE
4. This MOU applies in countries where UNICEF has an established office or programme and cov-
ers activities in favour of the following beneficiary populations:
i) refugees;
ii) returnees;
iii) internally displaced persons;
iv) local populations in the country of origin, affected by the presence of internally displaced
persons or returnees; or in the country of asylum affected by the presence of refugees.
III. RESPONSIBILITIES IN RELATION TO VARIOUS POPULATION GROUPS
5. The roles and responsibilities of UNHCR and UNICEF in relation to the population groups listed
in (4) above, while distinct, are sometimes inter-related. Both UNHCR and UNICEF seek to assist na-
tional authorities with regard to the well-being of children.
(i) Refugees
6. According to the Statute of its Office, UNHCR is mandated to provide international protection
to refugees and to promote durable solutions to their problems. UNHCR is ultimately responsible for
the international protection and welfare of refugees, which may include the provision of assistance,
in cooperation with host governments and in line with their international obligations.
7. UNICEF, for its part, has been called upon by its Executive Board (Resolution 1992/21) “to con-
tinue providing emergency assistance to refugee and displaced women and children, particularly
those living in areas affected by armed conflict and natural disasters…in accordance with its man-
date” and “in collaboration with other relevant United Nations Agencies and the international com-
munity.” UNICEF’s assistance to refugees, agreed in each case with the host government and with
UNHCR, is selective and subject to the availability of resources over and above those committed in its
Master Plan of Operations for the relevant country programme.
(ii) Returnees
8. UNHCR and UNICEF will consult with each other to ensure complementarity of activities for
returnees.
386

9. The involvement of UNICEF with returnee children and women could be part, or an extension,
of a regular country programme; such involvement may require undertaking new programme activ-
ities within the UNICEF-assisted country programme of cooperation. Normally, UNICEF actions,
whether through reprogramming of existing resources or through mobilization of supplementary
resources, are determined through consultation with government and other national partners.
10. UNHCR’s responsibility for returnees is to ensure that voluntary repatriation takes place under
conditions of safety and with dignity, assisting, where needed, the return and reintegration of repatri-
ating refugees and monitoring their safety and well-being on return. The duration and scope of UNHCR’s
activities in favour of returnees are limited and vary according to the specifics of each voluntary repa-
triation operation. UNHCR’s involvement may also be determined by specific tripartite or bilateral
agreements with respective countries outlining the framework of voluntary repatriation operations.
(iii) Internally displaced persons
11. The interventions of UNICEF and UNHCR in favour of internally displaced persons are usually
part of a broader United Nations coordinated plan of action.
12. UNICEF will assist governments and other authorities to fulfil their obligations to protect and
aid internally displaced populations. Within the context of the country programme of cooperation,
UNICEF focuses capacity-building approaches on community-level activities to help women and chil-
dren with special needs and to assure their integration into national programmes for the provision
of essential health, education and other social services.
13. UNHCR’s involvement is selective, applying to persons displaced internally for reasons that
would make them of concern to UNHCR if they were outside their country. This involvement is
based on a specific request of the Secretary-General or a competent principal organ of the United
Nations and is influenced by the consideration of how this might contribute to the prevention
and/or solution of refugee problems.
(iv) Affected local host populations
14. UNICEF, through the assistance interventions in its country programme of cooperation, will
support national authorities to ensure that the needs and well-being of the local host population
are addressed.
15. The involvement of UNHCR with affected local populations is selective, and normally is focused
on those living within the areas of refugee influx, return of repatriating refugees or internally dis-
placed persons of concern to UNHCR.
IV. TYPES OF COOPERATIVE ACTIVITIES
(i) Advocacy, Promotion and Strategy Formulation
16. UNHCR and UNICEF will cooperate, whenever appropriate and feasible, in the advocacy and pro-
motion of the rights and protection of children of joint concern, particularly in the following areas:
a. the right of the child to a name and nationality; the preservation of the child’s identity;
b. the safety and liberty of children: the prevention of their recruitment into armed forces
and groups; forced labour, torture, abduction, physical and/or sexual abuse and detention;
c. tracing, family reunification, the special concerns related to the evacuation of children and
adoption.
17. Within the context of the Convention on the Rights of the Child (CRC) UNICEF and UNHCR will
cooperate on the following issues:
a. promotion of implementation of the CRC;
b. organization of educational activities, e.g. seminars, training, or school-based projects,
aimed at the dissemination of knowledge of the rights provided for in the CRC;
c. reporting on the implementation of the CRC to the Committee on the Rights of the Child,
as well as follow-up on the implementation of the recommendations of the Committee.
UNHCR and UNICEF will facilitate the inclusion of data on refugee children in country re-
ports to the Committee on the Rights of the Child.
387

(ii) Operational Activities
18. The precise mix of UNHCR’s and UNICEF’s operational activities will vary according to situation-
specific conditions and needs. UNICEF’s particular strength and contribution arises from its long-
term country presence and perspective, and lies in its ability to focus on relief and development in a
mutually reinforcing manner. UNHCR’s challenge is to provide relief or initial reintegration assis-
tance in such a way that it is an effective complement to or precursor of development activities.
Contingency planning
19. Both UNHCR and UNICEF contribute to coordinated U.N. emergency contingency planning,
normally undertaken in full cooperation with national authorities. Within this framework, UNHCR
will invite UNICEF to participate in planning for possible refugee influxes. During such planning
activities, UNICEF will review with national counterparts and UNHCR ways in which its ongoing
country operations may quickly be adjusted to enable UNICEF to provide emergency assistance in
pre-identified sectors.
20. To enhance the effectiveness of a collaborative response to emergencies, both organizations
shall keep each other informed on the development and maintenance of their emergency response
capacities, such as, for example, emergency staff training and rosters, standby arrangements, mate-
rial stockpiles, or development of telecommunications networks.
Assessment and monitoring
21. UNICEF and UNHCR shall jointly agree on guidelines and specific methodologies for assessing
and monitoring the situation of children of joint concern and will exchange information on pro-
grammatic action to be taken.
Support to unaccompanied children
22. Typically, unaccompanied children are found both within the country of origin and in the
refugee population. Within the country of origin, UNICEF will assist national authorities to develop,
coordinate and apply appropriate policies, standards and strategies for the care and family reunifi-
cation of unaccompanied children. UNHCR takes the lead in relation to unaccompanied children
among refugee populations. The two organizations will collaborate in the further development and
use of global programming guidelines and standards and will ensure the necessary operational co-
ordination and information-sharing between operations in countries of asylum and of origin. Both
agencies will coordinate with ICRC in relation to tracing and reunification activities.
23. Where special arrangements for the care of unaccompanied refugee children are warranted,
UNHCR, within its responsibility for overall coordination, shall consult with UNICEF to determine
how UNICEF may participate in the management and implementation of such arrangements; such
assistance may be provided in the following ways:
i. undertaking assessment(s) of the situation and needs of unaccompanied children among
each refugee population;
ii. assisting in the adaptation of global principles and guidelines for the care of unaccompa-
nied children, provided in Refugee Children: Guidelines on Protection and Care (UNHCR
1994) and in Assisting in Emergencies (UNICEF 1986/1996) and, when required, developing
and issuing situation-specific guidelines in consultation with other organizations directly
involved in the care of such children and/or family tracing;
iii. taking responsibility for coordinating the setting up and supervision of programmes for
the care of unaccompanied children and for tracing and family reunion.
24. In countries of origin, UNICEF will ensure similar consultation and cooperation with UNHCR
and with national authorities to facilitate the incorporation of unaccompanied returnee children
into appropriate programmes.
Promotion of psychosocial well-being
25. UNHCR and UNICEF will collaborate in the further development of guidelines and training ma-
terials for activities addressing the needs of children traumatized by exposure to armed conflict and
extreme violence.
388

26. Where children are exposed to armed conflict, violence, abuse or other great hardship within
their own countries, UNICEF will collaborate with governments and other national partners to assess
the psychosocial situation of such children, to establish guidelines for care and counseling, and to
implement a national programme of cooperation aimed at helping traumatized children and at the
prevention of further traumatization. UNICEF support will emphasize national capacity develop-
ment, community- and family-based care strategies, and appropriate professional referral for the
most seriously traumatized children. UNICEF will collaborate with UNHCR to facilitate the integra-
tion of returnee children into national programmes.
27. In the case of an influx of refugees similarly exposed to traumatic events, UNHCR, in consulta-
tion with UNICEF and other relevant national institutions and NGOs, will coordinate an assessment
of the psychosocial situation of refugee children and the preparation of a programme of activities
to help those who are traumatized and to prevent further traumatization. Such programmes
should, to the extent possible, be designed with a view to community involvement, while for very
seriously traumatized children special arrangements would be needed. A decision on the most ap-
propriate modalities for implementation and the allocation of responsibilities will be taken by
UNHCR after consultation with UNICEF and other organizations directly involved. UNICEF may take
responsibility, inter alia, for the provision of technical assistance and the organization of training.
Support to families and children
28. Community-based activities focusing on the general well-being of refugee children are essen-
tial to UNHCR’s emergency response. In case of a major refugee emergency, this response may need
to be supported by additional capacity. At the request of UNHCR, UNICEF shall assist in the design
and development of programme activities to strengthen family and community coping and self-help
strategies and assure as healthy and nurturing an environment as possible for children.
29. The well-being, protection and healthy development of the child are best served in a secure,
caring and informed family environment. Thus UNICEF gives priority to strengthening – or reviving –
the capacity of the family to care for the child, to ensuring adequate family access to food and to in-
come (for the mother especially), to essential knowledge and coping skills. UNICEF will collaborate
with UNHCR to facilitate the integration of returnee families into appropriate family-support pro-
grammes.
Basic education
30. In seeking to provide educational opportunities for refugee children, UNHCR shall draw on the
expertise of UNICEF to help assess and analyze the educational status and needs of children. UNHCR
and UNICEF will jointly determine how UNICEF may contribute to adapting existing educational ma-
terial, including resources for peace education and to the development and provision of basic sup-
plies and equipment.
31. UNICEF will seek to ensure that in its regular country programmes of cooperation core educa-
tional and teacher training materials are identified which can form the basis of an early education
intervention during an emergency situation. UNICEF will collaborate with UNHCR to ensure continu-
ity in approach, content and teacher training between refugee basic education and the basic educa-
tion system in the country of origin. UNICEF, in its collaboration with national authorities to rehabili-
tate or develop the basic education system of the country of origin, will collaborate with UNHCR to
facilitate access for returnee children to national schools.
32. Both agencies will coordinate with UNESCO in relation to basic education activities.
Health Activities
33. UNHCR and UNICEF will continue to collaborate to meet the health needs of women and chil-
dren (including adolescents) of concern to both. UNICEF will focus particular attention on support to
local populations in the vicinity of refugee camps, working in conjunction with local authorities.
Specific activities may include the further elaboration of standards, guidelines or manuals, as for ex-
ample the production of “Reproductive Health in Refugee Situations.”
34. Measles Immunization. UNHCR will advise UNICEF immediately of a new refugee situation
where measles vaccination is a priority need. UNICEF will provide measles vaccine (and other anti-
gens that may be required on an emergency basis) together with related equipment and supplies,
389

including cold chain equipment, vaccination cards and also Vitamin A supplements. Arrangements
for vaccination with UNICEF supplies will be decided by mutual agreement, taking into account the
implementation capacity of national immunization services, NGOs and others.
35. EPI. UNICEF will assist national health authorities of the host country to provide full EPI serv-
ices, where feasible, to refugee women and children, and will help health authorities to maintain
the standard and coverage of service provision for host populations affected by refugee influxes.
36. Support to Safe Motherhood Practices. In the context of a new refugee situation, planning for
implementation of maternal and neonatal care programmes will be undertaken by UNICEF and
UNHCR in coordination with host country authorities, NGOs and other relevant organizations. In
addition, UNICEF will make available clean delivery kits for home and institutional deliveries,
whether assisted by professional birth attendants or not. When required, UNICEF will provide sup-
port to strengthen existing national referral systems for women experiencing complications.
37. Infant and young child feeding. In stabilized refugee situations, UNICEF and UNHCR will col-
laborate to support normal growth and nutrition in infants and young children. Emphasis will be
placed on the promotion, protection and support of exclusive breastfeeding for six months and on
continued breastfeeding for two years or beyond, while ensuring that children are given sufficient
good-quality complementary food and the necessary care. Both organizations will ensure compli-
ance with the established UNHCR policy for the Acceptance, Distribution and Use of Milk Products in
Refugee Programmes.
38. Health education in general will also be promoted by both organizations and UNICEF will sup-
port information, education and communication activities among refugee populations, drawing on,
and adapting as necessary, existing materials available in the host country and the country of origin.
39. Both agencies will coordinate with WHO in relation to basic health activities.
Water and Sanitation
40. At the onset of a refugee emergency, UNHCR may approach UNICEF to assist in ensuring provi-
sion of adequate quantities of safe water and sanitary services, where feasible, to refugee popula-
tions. In the framework of its country programme of cooperation UNICEF will help national authori-
ties to maintain the standard and coverage of service provision for affected host populations, and
for returnee populations.
41. UNHCR and UNICEF will jointly review and adapt, as necessary, existing designs of sanitary fa-
cilities used in host countries in order to streamline approaches to environmental sanitation for
refugees with those in force for host populations.
(iii) Reintegration Activities: Field-level Letters of Understanding
42. UNHCR will inform UNICEF concerning expected repatriation operations at an early stage of
planning and negotiations for each operation or whenever large-scale spontaneous movements are
expected. In preparation for the voluntary return of refugees to their country of origin, UNHCR, in
consultation with the relevant government authorities, will agree on complementary initiatives
focused on the areas of return, which will ensure the effective reintegration of the people, the avail-
ability of essential services, and the inclusion of these areas and their populations in longer-term
national development programmes.
43. In each instance, such planning and proposed initiatives, whenever appropriate and feasible,
shall be the subject of a field-level Letter of Understanding which reflects the particular circum-
stances surrounding the voluntary return and reintegration into the country of origin. In particular,
such Letters of Understanding should set out, inter-alia, the specific institutional framework for co-
operation; the agreed activities of each agency in support of returnee communities, especially those
aimed at the capacity building of governmental structures and non-governmental organizations;
and the intended linkages between the activities of both organizations.
390

V. FINAL PROVISIONS
Resource mobilization
44. Each organization is responsible for mobilizing the resources necessary to discharge the
responsibilities set out herein. Should insufficient resources be available for immediate action, the
other organization shall be consulted. For certain special operations, a decision may be taken to
issue a Joint Appeal. Both organizations will participate in DHA-coordinated consolidated intera-
gency appeal processes.
Public Information
45. UNHCR and UNICEF will share relevant information of interest to the media, NGOs and the
public about children of joint concern. UNHCR and UNICEF will cooperate, at both Headquarters
and field levels, to promote public awareness of the situation of children of concern and the work
of each organization to address their needs. Where appropriate and feasible, this cooperation may
take the form of joint or coordinated development of public information materials and activities.
Each agency shall designate focal points at Headquarters for regular consultations in this respect.
Phase-out and handover
46. Prior to the agreed conclusion of any activities pursuant to this MOU or to a field-level letter of
understanding, or where either UNHCR or UNICEF expects that resources will be insufficient for the
purposes intended, a mutually agreeable plan for phase-out shall be prepared.
47. Each agency shall be responsible for any outstanding obligations or liabilities that they may
have incurred. Assets, inventory or resources, if any, that remain after the conclusion of the activity
of the MOU shall be considered for free handover to the Agency with a continuing presence or
related operations in the area, to national institutions, or to suitable NGOs or other institutions
responsible for the beneficiary population contemplated by the activity.
VI. GENERAL CONDITIONS
48. Nothing in this MOU shall effect the relations of either signatory to its Governing Body, nor
the contractual relationship and administrative supervision of UNHCR and UNICEF to their opera-
tional partners.
49. The implementation of this MOU will be in compliance with the respective administrative and
financial rules and procedures of UNHCR and UNICEF and be subject to the availability of funds.
50. This MOU will enter into force upon signature and shall be of indefinite duration.
51. This MOU may be terminated by either party upon 90 days written notice.
52. This MOU may be modified at any time by mutual consent of the parties.
53. The Executive Heads of both organizations will meet when necessary to discuss policy issues,
and will nominate senior officials to meet at least annually (or regularly) to review strategic and im-
plementation issues of particular interest to both organizations and to propose possible courses of
action to address them.
Geneva, 14 March 1996
Signed for
United Nations High Commissioner United Nations Children’s Fund
for Refugees
Sadako Ogata Carol Bellamy
United Nations High Commissioner Executive Director
for Refugees
391

WFP/UNHCR COOPERATION
MEMORANDUM OF UNDERSTANDING ON THE JOINT WORKING
ARRANGEMENTS FOR REFUGEE, RETURNEE AND INTERNALLY DISPLACED
PERSONS OPERATIONS
REVISION EFFECTIVE AS OF 31 MARCH 1997
1. INTRODUCTION
1.1 Even before the conclusion of the 1985 Memorandum of Understanding (MOU), UNHCR and
WFP had established a very close partnership in the service of refugees. This was significantly
strengthened with the new working arrangements introduced progressively from the start of 1992.
A revised MOU, reflecting experience with these new arrangements, became effective at the start of
1994. This 1997 revision reflects the experience in implementing the provisions of the first revision.
1.2 The MOU sets out its objectives and scope, and establishes the division of responsibility and
arrangements for needs assessment, food mobilization, logistics, appeals, monitoring, nutritional
surveillance, reporting, and coordination. The last section contains the general conditions governing
the MOU.
1.3 The Statute of UNHCR mandates the Office to assume the function of providing international
protection to refugees and of seeking permanent solutions to the problems of refugees. Within the
United Nations system, UNHCR is thus responsible for the protection and welfare of refugees, and
for helping to find durable solutions, including voluntary repatriation, local integration and reset-
tlement in third countries. Subsequent General Assembly resolutions have given UNHCR certain
responsibilities in respect of stateless persons and returnees. In specific situations, and further to a
request from the Secretary-General or a competent principal organ of the United Nations, UNHCR
may also act on behalf of persons displaced internally for refugee-like reasons and those threatened
with displacement.
1.4 The definition of persons within UNHCR’s competence in the Office’s Statute places emphasis
on a well-founded fear of persecution. Additional criteria have been progressively added to accom-
modate the evolving nature of refugee flows. In many situations, UNHCR now provides protection
and assistance to refugees fleeing persecution, conflict and widespread violations of human rights.
1.5 WFP is the food aid arm of the United Nations system. WFP meets the emergency food needs
of refugees and internally displaced persons (IDPs), and provides the associated logistic support; uses
food aid to support economic and social development; and promotes world food security, defined
as access of all people at all times to the food needed for conducting an active and healthy life. WFP
thus has both an emergency and a developmental role. The latter is of particular relevance in WFP’s
cooperation with UNHCR and other agencies, including financial institutions, in rehabilitation activi-
ties in the country of origin. Within the scope of the MOU, WFP has the lead responsibility for mobi-
lizing basic food commodities and the resources to deliver them.
1.6 To achieve its objectives, the MOU must be of value to UNHCR and WFP colleagues in the field,
and reflect their experiences. Suggestions to improve its usefulness are encouraged. Full and open
cooperation and exchange of information at all levels are prerequisites for the success of the vital
partnership for which the MOU provides the framework.
2. OBJECTIVES AND SCOPE
2.1 Through the timely provision of the right quantity of the right food and related non-food in-
puts, UNHCR and WFP seek to ensure:
– the restoration and/or maintenance of a sound nutritional status through a food basket that
meets the assessed requirements, is nutritionally balanced and is culturally acceptable; and
– the promotion of as much self-reliance as possible among the beneficiaries, through the
implementation of appropriate programmes to develop food production or generate self-
employment, which will thereby facilitate a progressive shift from general relief food dis-
tribution towards sustainable development-oriented activities.
392

2.2 UNHCR and WFP are committed to ensuring that food aid is targeted at the household level
and reaches the most vulnerable, and that its delivery respects the guiding principles of humanitar-
ian action. They will also work together to implement strategies to involve the beneficiary commu-
nity, and particularly women, in all aspects of the management of food aid.
2.3 The MOU is a management tool contributing to the achievement of these objectives by defin-
ing clearly the responsibilities and arrangements for cooperation between UNHCR and WFP. It does
so in a way that maximizes the strengths and comparative advantages of each organization for the
benefit of all concerned, and that ensures the necessary coordination.
2.4 The MOU covers cooperation in the provision of food aid to refugees, returnees and, in spe-

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