it . -k 
•A- *r COMMISSION OF THE EUROPEAN COMMUNITIES 
Brussels, 15.07.1998 
COM(1998) 448 final 
Annual Report on Humanitarian Aid 1997 
(presented by the Commission) 

TABLE OF CONTENTS 
Executive summary 
1. GENERAL FRAMEWORK 1 
1.1 Legal basis, follow-up of the Council Regulation and coordination with 
Member States 1 
1.2 Financial basis 1 
2. OPERATIONAL FRAMEWORK 2 
2.1 Revision of the Framework Partnership Contract 2 
2.2 Coordination with partners 2 
3. HUMANITARIAN OPERATIONS 3 
3.1 Africa 3 
3.2 Central and Eastern Europe 7 
3.3 Russia and CIS 8 
3.4 Asia S 
3.5 North Africa and the Middle East 10 
3.6 Latin America and the Caribbean 11 
4. HORIZONTAL ACTIVITIES , 11 
o 
4.1 Information 11 
4.2 Evaluation and Financial Audits 12 
4.3 Databases and Management Systems 13 
4.4 Disaster Preparedness 14 
4.5 Education and Training 14 
4.6 Policy Initiatives 15 
^P 
5. COORDINATION AND COOPERATION 15 
5.1 Inter-service Coordination 15 
5.2 European Parliament 16 
5.3 WEU 17 
5.4 Relations with United Nations 17 
5.5 Relations with the United States 17 
5.6 Japan 18 
6. PROSPECTS FOR THE FUTURE 18 
Annexes 
Annex 1 
Annex 2 
Annex 3 
Annex 4 
Annex 5 
Annex 6 Financial Decisions for Humanitarian Aid by Region 
Humanitarian Assistance - Contracts by Financial Years 
Overview of Financial Decisions for EC Humanitarian Aid by source of Finance 
1993-1997 
Amount of the Contacts Signed in 1996 and 1997 
Financial Decision for Humanitarian Aid by Region in 1996 and 1997 
EC Contracts for Humanitarian Assistance in 1993-94-95-96-97 (Financial Years) 
-&-
Executive Summary 
In 1997 ECHO'S activities reached a regular cruising speed. They constitute an integral part of 
the Community's initiatives in the filed of external relations and notably the "human 
dimension". Public support in Europe for humanitarian aid activities remains high. 
On the financial side there was a certain decrease of funds from ECU 656 million in 1996 to 
ECU 441 million in 1997, mainly due to the fact that ECHO did not call on the humanitarian 
reserve and instead had additional funds transferred from other budget lines. However, within 
the reporting year ECHO, actually increased its activity level in terms of funds disbursed 
compared with the previous year. This increase is due to substantial decisions on humanitarian 
aid allocations at the end of 1996 for which contracts were signed in 1997. 
Former Yugoslavia and the Great Lakes region remained the main theatres of activity, 
together accounting for 33% of ECHO's funds. As opposed to the previous years, 1997 -
fortunately - did not produce the one major crisis that focused a lot of attention. At the same 
time ECHO considerably strengthened its presence in the field by basing additional ECHO 
correspondents in the Middle East (Amman), South-East Asia and Colombia. 
Obviously, complex emergencies and natural disasters continued to occur, in the case of 
armed conflict often aggravated by lack of access to the victims. Humanitarian assistance is 
more and more hampered by a lack of humanitarian space, a problem which has to be 
addressed on all levels, including political ones. Consequently, the question of security for 
humanitarian relief workers and humanitarian space was ECHO'S main field of policy 
development in 1997. 
1997 also saw enhanced efforts to strengthen coordination with ECHO'S partners. In the first 
18 months of existence of the regulation on humanitarian aid, coordination with Member 
States intensified, on operational as well as political level. The revision of the Framework 
Partnership Contract was the occasion to improve ECHO's cooperation with partners, and 
intensified contacts with the different parts of the UN system resulted in closer cooperation at 
field as well as at headquarters level. 
Disaster preparedness and the preparation for the possible effects of El Nino were another 
focus for ECHO in 1997, as well as the continued implementation of the communication on 
Linking Relief, Rehabilitation and Development. 
-3& 
1. GENERAL FRAMEWORK 
1.1 Legal basis, follow-up of the Council Regulation and coordination with Member States 
1997 witnessed the consolidation of work carried out within the Humanitarian Aid Committee 
which was set up in 1996 following the entry into force of Council Regulation (EC) 
No 1257/96 of 20 June 1996 concerning humanitarian aid.1 
At its first meeting in 1997, and in accordance with the relevant provisions of the Regulation, 
the committee discussed guidelines and orientations for the year ahead on the basis of a 
working paper entitled "ECHO 1997 Strategy". This discussion was very fruitful and set out 
the basis for similar exercises in the future. 
The committee met seven times in 1997. All of the Commission's draft proposals referred to 
the committee, either by oral or written procedure, received a favourable opinion. 
In addition to formal decisions on proposed actions in a specific country or region the 
Committee handled an increasing number of horizontal issues in the field of humanitarian aid, 
thus helping to develop dialogue with Member States on issues of common interest. The main 
issues examined ranged from revision of the Framework Partnership Contract (see chapter 
2.1), protection and security of relief workers, to evaluation of humanitarian aid programmes 
and visibility. 
The main event regarding policy discussions was an informal meeting of the Committee 
dedicated exclusively to discussing the impact of the UN reform proposals on the 
humanitarian sector (see chapter 5.4). 
1.2 Financial basis 
In 1997 the humanitarian aid budget managed by ECHO stood at ECU 441.6 million. 
Although a considerable amount, this was a smaller budget than ECHO disbursed in each of 
the two previous years (ECU 656 million in 1996 and ECU 692 million in 1995). The relative 
improvements on the ground in former Yugoslavia and Central Africa, as well as in other 
theatres of crisis in the world, have contributed to this development. 
In spite of a drop in the volume of humanitarian aid in 1997, it is important to note that 
ECHO'S level of activity stayed the same due to substantial resources committed at the end of 
1996. for which contracts were signed in the reporting year (see annex 4). For a more detailed 
statistical breakdown please refer to the annexes. 
1 Official .'ournai I. 
2. OPERATIONAL FRAMEWORK 
2.1 Revision of the Framework Partnership Contract 
The Framework Partnership Contract currently in force was adopted by the Commission in 
May 19932 and entered into force in September 1993. The adoption of the Regulation on 
humanitarian aid and the experience gained in recent years both highlighted the need for its 
revision. 
The objectives of the revision are as follows: simplification, clarification, flexibility, 
transparency and optimisation of results, whilst maintaining an adequate level of control of 
the use of Community funds. 
As part of the revision process, ECHO entered into an informal, yet exhaustive, dialogue with 
the humanitarian partner organisations: NGOs and international organisations. The Member 
States were duly informed of progress on the exercise in the framework of the Humanitarian 
Aid Committee. 
The revision of the Framework Partnership Contract required a considerable input from 
ECHO legal and financial experts and the dialogue group of ECHO's partners. It is hoped that 
once the revised version of the agreement is introduced in 1998, it will have succeeded in 
capitalising on the strengths of the existing agreement while at the same time developing the 
partnership in the contested areas. 
Once consultations with the humanitarian organisations are completed and the Member States 
have been notified, the Commission will adopt a communication establishing the new 
Framework Partnership Contract for regulating ECHO's relations with its partners. 
2.2 Coordination with partners 
ECHO continued throughout the year to seek opportunities for, and devote time to, 
discussions with various groupings of partner NGOs in a number of Member States. Upon the 
new Director's assuming his functions, an early priority was to meet with NGOs in all 
Member States as well as with ICRC, IFRC and UN partner agencies in Geneva. Partners 
appreciated this approach and the lines of communication which it was instrumental in 
opening. 
Close coordination with partners at the policy level was assured through participation in 
numerous forums and workshops in 1997. This and the ongoing work in the Dialogue Group 
on the revision of the Partnership Contract created a new climate of confidence between 
ECHO and its partners. 
2 PV (93) 1151 - SEC/93/688 and 12. 
3. HUMANITARIAN OPÉRATIONS 
3.1 Africa 
1997 was an especially difficult year for all humanitarian organisations in the Great Lakes 
region. After two years of the presence of more than two million Rwandan refugees in relief 
camps in former Zaire and Tanzania, the situation changed dramatically in the space of a few 
months by far-reaching developments. 
The period was marked, at the end of 1996, by the sudden return of one million refugees to 
Rwanda. An exodus lasting several months saw hundreds of thousands of them scattered over 
vast areas of the Great Lakes region. 
The task of humanitarian organisations was not made any easier by prohibitions of access, the 
lack of security and the policies of national and local authorities on the deployment of aid. 
ECHO mainly funded the deployment of emergency relief aid in the form of food, hygiene, 
medical and sanitation supplies so as best to respond to requirements. ECHO was also swift 
to provide funding for emergency small-scale infrastructure rehabilitation schemes, 
particularly in Rwanda. 
Under its ECU 158.93 million global plan, adopted in December 1996, ECHO endeavoured to 
meet immediate, post-emergency humanitarian requirements as best it could while at the same 
time respecting the mandate of each of the international organisations. 
Humanitarian assistance in Rwanda principally focused on all vulnerable members of the 
community - the elderly, widows, the victims of genocide, unaccompanied children and 
prisoners - with a view to facilitating their reintegration. 
In 1997, a total of ECU 31 million was allocated to Rwanda, 79% of which, i.e. 24.6 million, 
was used to finance operations via the international agencies, e.g. UNHCR, WFP, WHO, 
UNICEF, ICRC and IFRC. 
The Member States and ECHO are the leading donors of humanitarian assistance to Burundi. 
12 of the country's 16 provinces are covered by ECHO programmes despite the severe access 
problems and permanent lack of security. During 1997 ECHO provided financial support of 
around ECU 15 million. 
In the early part of the year, the main programmes funded by ECHO in the Democratic 
Republic of Congo were UNHCR relief programmes for the Rwandan and Burundian 
refugees scattered throughout the country and medical programmes carried out by the ICRC 
and NGOs to assist displaced persons and other victims of the troubles in various regions. 
After the capture of Kisangani in March, relief continued for refugees and local inhabitants 
but under increasingly difficult conditions and with limited access to victims. ECHO funded 
most of the operations for the return of Rwandan refugees, in particular airlifts out of 
Kisangani, Mbandaka and Loukolela between May and September. 
More than ECU 10.5 million was spent on medical and nutrition programmes during the year 
via 18 NGOs, in addition to direct allocations to the UNHCR, WFP, UNICEF and ICRC. 
Financial support provided by ECHO during 1997 totalled some ECU 60 million. 
At the turn of the year 1996/97, the Tanzanian and Rwandan authorities caught the UNHCR 
unprepared by sending more than 500 000 Rwandan refugees in the camps in Tanzania back 
to Rwanda. 
There were simultaneous reports of new movements of Congolese refugees in the direction of 
Tanzania. 
The current total of refugees in DRC is approximately 335 000, consisting of 260 000 
Burundians and 75 000 Congolese divided up into ten camps under the control of the 
UNHCR, IFRC and WFP and financed mainly by ECHO. ECHO has provided some ECU 22 
million in support for 1997. 
There are considerable delays in Angola in the schedule agreed for the implementation of the 
Lusaka agreements, signed in 1994. Angola is still divided up into Government and UNITA 
controlled zones which has hindered the free movement of persons and goods and restricted 
humanitarian aid programmes on account of localised trouble spots, banditry and anti­
personnel mines. 
The demobilisation process is proving particularly slow. The currently reported figure of 
38 497 consists mainly of children and the elderly. According to various sources, between 
18 000 and 35 000 armed UNITA troops are scattered throughout the country, although the 
figure is probably nearer 20 000. 
Humanitarian aid from the Commission to Angola in 1997 totalled ECU 14 million, from 
which 31 operations were financed via 25 NGOs and international organisations covering the 
following priority sectors: health care and preventive care, emergency vaccinations, 
therapeutic and supplementary nutrition, improved water and sanitation, distribution of basic 
necessities, logistics, protection of civilians and family tracing. In December 1997 a new 
financial decision for Angola amounting to 19 million ECU was taken, these funds will be 
disbursed during 1998. 
Thanks to ECHO and its partners, a population estimated at 2 300 000 has access to primary 
health care and medical referral services in some eleven of the country's provinces. 
The ECHO Flight service created in 1994 continued to run in the Horn of Africa. Six aircraft, 
based in Nairobi, Djibouti, Mandera and Lokichoggio are currently used for humanitarian 
operations in Somalia, Kenya and southern Sudan. 
Between May 1994 and the end of 1997, ECHO Flight carried more than 110 000 passengers, 
more than 35 000 tonnes of cargo and logged more than 39 000 flight hours. ECU 9 million in 
aid was granted in 1997 to allow ECHO Flight to continue operations. 
During the year, the effective implementation of humanitarian aid was jeopardised by the poor 
security situation, in particular in Sudan, and by low air traffic capacity at Lokichoggio as a 
result of the ban on flights imposed by the Sudanese Government. 
1997 may prove to be the year that peace returned to Liberia after more than seven years of a 
terrible civil war. Implementation of the 1996 peace accord (Abuja II) went ahead relatively 
smoothly with the disarmament and demobilisation of combatants in the first phase, and then, 
in a second phase, the elections which installed the government of Charles Taylor. 
On the security front, the multinational African force ECOMOG continued its peacekeeping 
role. Its mandate lasts until February 1998. There was a considerable fall in security incidents 
and outbreaks of shooting during the year. 
The dominant issue on the security front was the return of 400 000 refugees and displaced 
persons to their homes. In the interests of continuity, ECHO and DG VIII maintained close 
coordination of their operations in the region. ECHO focused on the medical and nutrition 
sectors adopting a strategy of gradual withdrawal while DG VIII took over responsibility for 
programmes in these areas. As ECHO's total withdrawal from Liberia was planned for the end 
of December 1997, it adopted only one new decision in 1997 for a total of ECU 1 million. 
The return of refugees and displaced persons to north Mali gathered pace during the year 
thanks to the introduction of numerous aid programmes at their destinations. Mali's 
programme for the demobilisation and socio-economic reintegration of ex-combatants 
achieved its overall aim. 
Nevertheless, the rehabilitation of essential everyday structures (means of subsistence, 
income-generating activities) remains, a vital necessity. 
In 1997 ECHO decided to step up operations in Mali both on a sectoral and geographical 
basis. Following an integrated approach, projects financed by ECHO were aimed principally 
at the rehabilitation of the return destinations of the refugees and displaced persons so as to 
help them resume their income-generating activities. ECHO's operations were coordinated 
with DG VIII as well as with Member State development programmes. The global plan 
decided by the Commission covers a period of one year from July 1997 to July 1998 for a 
total of ECU 7.6 million. Commissioner Emma Bonino visited Mali in December. 
Although the year got off to a good start in Sierra Leone with the return of almost 500 000 
displaced persons to their home villages, leaving the camps practically empty, a coup d'état 
on 25 May 1997 overthrew the fragile government which had been democratically elected the 
previous year. The political situation has been extremely confused ever since with the military 
junta forming an alliance with the RUF rebel movement (started in 1991) and the legitimate 
government in exile in Conakry, supported by local militias and the inter-African armed 
forces of the ECOWAS countries. 
The ECOWAS countries decided to impose a total economic embargo on Sierra Leone at the 
end of August. On 8 October, the UN Security Council approved an extension of the embargo 
to cover arms and oil. 
In the face of international pressure, a peace agreement was adopted on 22 October by the 
ECOWAS Committee of Five and the military junta. The agreement provides for a ceasefire 
and the demobilisation of both armies with effect from 1 December and the restoration of 
President Kabhah to power from 22 April 1998. 
However, as the last few weeks of 1997 have shown, implementation of the agreement is 
proving very difficult. The disarmament and demobilisation phase has not got off to the 
expected start. An uncertain future is in prospect.3 
Since this report was written at the end of 1997, the situation in Sierra Leone has been thrown into chaos. Faced with 
an impasse on the peace agreement, the ECOMOG forces launched a military offensive on Freetown in early 
February. Although the capital has been retaken, the war has spread to the rest of the country, arousing fears of a 
5 
On the humanitarian front, the situation was kept under control thanks to some outstanding 
preparatory work and to the excellent coordination provided by the humanitarian 
organisations. Nevertheless, humanitarian assistance was used as a means of exerting political 
pressure when, at the end of 1997, aid was prevented from crossing the Guinea-Sierra Leone 
border by the ECOWAS blockade despite the fact that some trading was still going on even 
under the embargo. 
ECHO encouraged coordination between all the parties involved in Sierra Leone by 
organising a meeting in Brussels in early October. It has played an active part throughout the 
crisis, contributing to the tune of ECU 3.7 million, mainly in the health sector through the 
ICRC, MSF, MERLIN and ACF. 
Throughout 1997, the situation in Somalia has been characterised by a mixture of apparent 
progress towards political reconciliation between some of the major faction leaders, and 
continued or even worsening insecurity and inter-clan conflict on the ground in many 
locations. The different regional efforts to find a peaceful solution culminated in a meeting 
held in Cairo in November 1997 at which all major leaders, with the exception of 'President' 
Egal of Somaliland in the north east, seemed to have reached agreement on the establishment 
of a transitional national government. It is too early at this stage to say whether this 
agreement will be the breakthrough in restoring peace to a country that has been without a 
central government since the beginning of the decade. 
In late October 1997, Somalia's problems were compounded by severe floods which affected 
much of the south of the country. By mid December, over 1 500 people were known to have 
died and a further 230 000 had been displaced from their homes by rising flood water. 
During the year, ECHO allocated a total of ECU 7 million for humanitarian assistance in 
Somalia. Of this amount, ECU 2 million was released in November in order to provide 
immediate life-saving assistance to flood victims. The remaining ECU 5 million was used to 
fund a number of core health and nutritional programmes designed to meet the basis 
humanitarian needs of the most vulnerable sections of the population, in particular women, 
<children and displaced persons. These programmes are concentrated in the most insecure 
regions of the country, such as Mogadishu and Kismayo, where basic conditions do not exist 
for DG VIII to fund more ambitious and far-reaching rehabilitation programmes. 
Much of northern and eastern Kenya was affected by severe climatic conditions during 1997: 
drought until October, followed by exceptionally heavy rains in the last two months-of the 
year which lead to widespread flooding. Combined with the increasing incapacity of 
governmental authorities to meet the basic needs of the Kenyan people, this lead to a 
significant deterioration in the humanitarian situation. 
During 1997, new funding decisions totalling 3.1 million ECU were taken by the Commission 
for humanitarian assistance in Kenya. These funds were used for variety of water and 
nutritional interventions in drought affected areas between April and October, and later in the 
year also for emergency programmes in the health and food sectors in the response to the 
severe flooding. 
humanitarian disaster, in particular as regards food supplies, as access by road and air to the interior of the country is 
currently impossible. ECHO has released ECU 1.9 million to help with the situation. 
ECHO released a total of 2.23 million ECU for humanitarian assistance in Ethiopia during 
1997. This amount was used to support three distinct humanitarian programmes. Firstly, 
ECHO made a grant to the UNHCR for a large-scale water programme in the east of the 
country designed to benefit the large Somali refugee population in this area as well as the 
local Ethiopian population, many of whom are themselves returned refugees from Somalia. 
Secondly, ECHO supported an emergency nutritional intervention in Gode town carried out 
by MSF Belgium in favour of a marginalised community of returnees from Somalia. 
Finally, funds were given to the ICRC in order to strengthen their protection activities in 
Ethiopia, in particular visiting political prisoners and trying to ensure basic minimum prison 
conditions. 
There was no improvement in the political situation in Sudan, especially in the south, 
compared to 1996. On the eve of its fifteenth anniversary, the war in Sudan flared up at the 
start of the year in the south of the country thus giving rise to new movements of displaced 
persons in the region. 
For the majority of the inhabitants of this region of Africa, humanitarian assistance has 
become the sole means of subsistence. Meanwhile, the position of the humanitarian 
organisations in Sudan is becoming increasingly precarious following the expulsion of one 
French NGO (Action contre la Faim) from southern Sudan in September and attempts by all 
the warring parties to take direct control of the distribution of humanitarian aid. 
In 1997, ECHO provided more than ECU 21 million in humanitarian aid to the victims of the 
war in Sudan and northern Uganda. This includes logistical support provided by ECHO to 
southern Sudan (ECHO Flight) and a contribution to the World Food Programme in respect of 
food aid in the north and south of the country. ECHO's priorities are basically still the same as 
for 1996, i.e. medical, sanitation and nutritional assistance and some food security 
programmes, notably in the veterinary sector. 
3.2 Central and Eastern Europe 
The political situation in former Yugoslavia in 1997 remained inconclusive. Entering the 
second year of peace there was a notable overall improvement of the humanitarian situation in 
most parts of the region. Nevertheless, the improvement of the general situation in Bosnia and 
Herzegovina that was expected in 1997 only partially materialised. While the large scale 
economic reconstruction programme has taken off and is starting to show real results, 
especially in the Croat-Muslim Federation, the country remains largely unable to provide for 
basic services to its population. This is particularly affecting Republika Srpska, where the lack 
of progress in the return process has made most donors withhold their funding for 
reconstruction projects. Humanitarian assistance, especially in the form of small-scale 
rehabilitation, coupled with specific efforts towards dependency reduction and local capacity 
building consequently remained necessary. 
Nevertheless the continued implementation of the Dayton Peace Process meant that strictly 
humanitarian aid to Bosnia and Herzegovina could be further reduced as more regular 
assistance from the European Commission through the OBNOVA and PHARE programmes 
(217 MECU for Bosnia and Herzegovina) could be implemented. The return of internally 
displaced persons, as well as refugees from the Union did however continue to require special 
assistance from ECHO. Elsewhere in former Yugoslavia, aid continued to decline, being 
restricted now to Croatia and FRY. Overall aid from ECHO to these three countries was 
ECU 133 million compared to ECU 187 million in 1996. 
Two events demanded important ECHO assistance elsewhere in Eastern Europe. The collapse 
of an ordered system in Albania led to a series of decisions to provide humanitarian aid 
totalling ECU 16 million, but by the end of the year, as normality returned, the efforts were 
concentrated on the medical sector. 
Equally the worst flood in recorded memory in this part of the world led to ECU 14.1 million 
being granted principally to Poland and the Czech Republic, but with small amounts to 
Slovakia and Hungary. Most of the funds were destined for rehabilitation and winterisation. 
Flood-related reconstruction in Poland, Romania and the Czech Republic was equally 
supported through re-allocation of over 100 MECU from the PHARE programme. At the 
height of the crisis in July 1997 Commissioner Emma Bonino visited both Poland and the 
Czech Republic to gain a first-hand impression of the scope of the natural disaster. 
The only other aid to Eastern Europe was ECU 1.8 million of medical supplies and some 
food to Bulgaria. From the PHARE programme, a total of 40 MECU emergency social 
assistance was made available. 
3.3 Russia and CIS 
In 1997, humanitarian aid to the Commonwealth of Independent States totalled ECU 36.05 
million. 
In Central Asia, the Humanitarian Office provided aid of ECU 14.9 million to Tajikistan, a 
country where all socio-economic indicators continued their decline, although there was hope 
of a real end to the five-year civil war. In Kyrgyzstan, some degree of positive growth 
permitted a decrease in humanitarian aid from ECU 3.92 million in 1996 to ECU 2.75 million 
in 1997. 
Following a strategy involving passing from relief aid to rehabilitation and development 
stages, ECHO has reduced its humanitarian assistance to Armenia, Azerbaijan and Georgia 
from ECU 24.6 million in 1996 to ECU 14 million in 1997. 
Concerning the Russian Federation, the aid granted by the Commission reached ECU 2.75 
million. Due to the ongoing deterioration of security in the northern Caucasus and despite the 
acute humanitarian needs in Chechnya, further scheduled programmes could not be 
implemented. The aid programme for the victims of the Chernobyl catastrophe in 1997 
amounted to ECU 1 million. 
3.4 Asia 
North Korea has received special attention following the humanitarian crisis. ECHO sent an 
independent evaluation mission to this isolated country in March. As the findings of this mission 
confirmed the seriousness of the situation (total collapse of food distribution mechanisms and the 
public health system), the European Commission agreed on a substantial humanitarian assistance 
package. Apart from food aid (channelled via DG VIII), the programme also contains public 
health-related assistance carried out by ECHO. ECHO has allocated more than ECU 20 million to 
various projects in the fields of distribution of medicines and medical equipment, nutrition, as 
well as water.and sanitation (implemented by various NGOs and international agencies). The 
programme is monitored and coordinated by a team of independent experts based in Pyongyang. 
Although working conditions remain tough, experience proves once again that ECHO and its 
partners are capable of carrying out humanitarian assistance even in an extremely difficult 
environment. 
As regards the Indian subcontinent, ECHO's attention in 1997 was - as in previous years -mainly 
focused on the humanitarian needs caused by the civil war in Sri Lanka. In 1997 ECHO allocated 
altogether ECU 3 million to various projects in favour of the hundreds of thousands of persons 
displaced by the war. Despite several major campaigns by government forces and some steps 
towards a political solution, the overall situation has not greatly changed in 1997, the fourteenth 
year of the conflict. 
During L997 ECHO signed humanitarian contracts in favour of Afghanistan for a total value of 
ECU 40.62 million. These humanitarian operations cover relief work, mine clearance, public 
health, water and sanitation as well as shelter projects. 
The ongoing war as well as the strict rules imposed by the Taliban made the living conditions of 
the Afghan people worse than ever. ECHO's operations, implemented by a wide range of partners 
(including 20 European NGOs, the International Red Cross and some UN agencies), play a crucial 
role in providing relief to the local population. 
The highly publicised visit of Commissioner Bonino to Afghanistan in September 1997 has 
helped to put the situation of Afghan women under the Taliban back on the world agenda. 
ECHO approved five decisions in favour of the victims of war in Cambodia, for a total amount 
of ECU 5.535 million. Apart from the continuation of ongoing operations concerning orthopaedic 
programmes and training activities for victims of antipersonnel mines, the assistance to the 
population of the Northern provinces (started in 1996 after these areas had been deprived of 
humanitarian aid for nearly twenty years) was also continued. Following the violent fighting 
which broke out in July between followers of Prince Ranarriddh's FUNCINPEC and Hun Sen's 
Cambodian People's Party (CPP), assistance was provided to the numerous victims who had 
either been displaced within Cambodia or had fled to Thailand. 
In Thailand, ECHO funded operations in favour of the Karen, Karenni and Mon, who are living 
as refugees or displaced persons in the areas around the border with Myanmar. ECHO allocated 
ECU 3.25 million in assistance (food, medical and sanitation) to this refugee population. 
An evaluation carried out in Myanmar confirmed the difficulties encountered by humanitarian 
agencies trying to implement projects autonomously. A decision of ECU 675 000 has, however, 
made it possible to continue a sanitation project in favour of vulnerable people living in the three 
townships of Rakhine State and the Rohingyas. 
As regards Laos, ECHO approved three decisions in favour of the victims of floods and displaced 
people (ECU 2.02 million). 
Vietnam suffered considerable hardships during the autumn of this year, due to the damage 
caused by typhoons Fritz and Linda. Humanitarian assistance to the typhoon victims reached a 
total of ECU 1.625 million. 
In September 1996, the government of the Philippines and the Moro National Liberation Front 
signed a historic peace agreement, putting an end to twenty years of conflict on Mindanao. One 
of the most urgent problems now will be the reintegration of 120 000 Muslim combatants and 
their families in the Mindanao area. Apart from a project in favour of vulnerable persons in some 
neighbourhoods of Tondo District (Manila), the three decisions taken by the Commission in 1997 
(ECU 980 000) mainly focused on Mindanao. 
Severe droughts and fires, influenced by the El Nino phenomenon, put Indonesia into a state of 
emergency. Only with considerable delay did the Indonesian Government appeal for international 
assistance (heavy material for the extinction of the fires and for monitoring pollution levels). 
Humanitarian agencies were hesitant in submitting projects to ECHO, given the limited 
willingness of local authorities to grant access to some of the concerned population groups (in 
particular ethnic minorities). However, following an exploratory mission, a decision in favour of 
vulnerable groups on the island of Java was taken. A second decision was taken in December to 
cover health/sanitation needs in Irian Jaya and Sumatra. Total assistance to Indonesia amounted 
to ECU 2.055 million. 
Since the end of the Gulf War in 1991, the Commission has been the major donor of humanitarian 
aid to Iraq, with over ECU 200 million. Despite considerable problems of access for the NGOs to 
Iraq, the ECHO 1997 contribution saw the implementation of projects to the order of ECU 22 
million. These operations focused mainly on rehabilitation, the supply of medicines, mine 
clearance and victims of landmines. These operations were hindered by a renewed outbreak of 
armed conflict between the Kurdish factions in the North. 
Initially aid was almost exclusively for the Kurdish controlled North, however the 1997 
programme was almost equally split between the North and Government of Iraq (GOI) controlled 
areas. ECHO is monitoring the effects of the UN oil-for-food deal for Iraq of USD 4 000 million 
US dollars a year, which began to be implemented in 1997. 
Commissioner Bonino travelled to Iraq with an evaluation mission in July 1997 in order to gain 
some first hand assessments of the humanitarian situation. 
3.5 North Africa and the Middle East 
ECHO operations mainly benefited the Sahrawi refugees in the Tindouf area of Algeria, 
Palestinians living in the Gaza Strip and the West Bank and Lebanese civilians and 
Palestinian refugees in Lebanon. 
In May, aid of ECU 7 million was approved for the Sahrawi people, consisting of a 
substantial package of food aid and various non-food projects. An additional sum of ECU 0.6 
million was allocated to help keep up supplies of essential food items to this vulnerable 
community. 
Recent events in the Occupied Territories in Israel and in southern Lebanon continue to 
have a severe impact on the Palestinian community and on the Lebanese who are suffering 
under the repercussions of the repeated territory closures and tension in south Lebanon. 
ECHO has focused its efforts on the health sector and on emergency food aid to the poor. 
A total of ECU 10.35 million has been approved in assistance to the Palestinians and 
Lebanese. This sum will help a number of NGOs and international organisations to provide 
relief to clinics, dispensaries, special centres, crèches, etc. in the Gaza Strip, the West Bank 
and Lebanon. 
This year ECHO conducted its first operations in Jordan, providing assistance to Palestine 
refugee camps in the country (ECU 0.6 million) via the UNRWA and other European NGOs. 
10 
Another first for ECHO in the region was the opening of an office in Amman to oversee the 
various humanitarian assistance programmes. 
3.6 Latin America and the Caribbean 
ECHO's activities in South America have followed similar patterns to those in 1996. In 
Colombia and Peru, strategies were defined in favour of displaced persons and victims of violence 
which led to global plans being implemented. In Ecuador, Bolivia and Paraguay ECHO also 
assisted victims of natural disasters. In 1997 activities in Latin America were increasingly aimed 
at mitigating the effects of El Nino (see chapter 4.4). 
ECHO provided assistance in Guatemala to demobilised ex-guerrillas and to displaced 
persons returning from Mexico following the signature of the definitive peace agreement 
putting an end to 36 years of internal armed conflict. The total aid approved amounts to 
ECU 6 050 000. 
Operations in Nicaragua focusea on helping public health services deal with epidemics and 
other urgent health problems. Aid totalling ECU 2.8 million was approved. Funding of ECU 
250 000 was also provided for the first phase of a mine clearance programme. Humanitarian 
operations in Honduras supported pilot projects in the health sector for the benefit of 
indigenous minorities and isolated communities not covered by the state services for a total 
amount of ECU 0.9 million. 
Funding was provided at minimum notice in Mexico for emergency aid to victims of 
hurricane Pauline (ECU 500 000). Towards the end of the year, a second sum of 
ECU 800 000 was approved in emergency aid to victims of hurricane Rick. 
There are continuing problems in Cuba, in particular in the health and food sectors. In 1997 
the Commission approved the Fourth Global Plan for a total sum of ECU 8 million in aid to 
the most vulnerable sections of Cuba's population: children, pregnant women, the sick and the 
elderly. A further ECU 2 million was approved in emergency aid to vulnerable groups not 
covered by the health system. Other humanitarian operations were conducted in 1997 in 
response to natural catastrophes, e.g. hurricane Lily and an epidemic of dengue fever. 
Haiti has been one of the examples of a successful strategy of continuum linking relief and 
development. At the end of 1997 ECHO has ceased its activities in the health sector on Haiti 
with DG VIII taking over the programmes from February 1998. To ensure a smooth hand­
over 2 MECU have been disbursed for the transition period. 
4. HORIZONTAL ACTIVITIES 
4.1 Information 
ECHO's Information strategy in 1997 combined five strands: the media, publications, audio­
visual productions, joint activities with NGOs and international organisations, joint activities 
with Member States. 
In close cooperation with the Spokesman's Service, press releases were issued to announce 
major decisions. Smaller decisions were grouped in 'News in Brief items. An ECHO website 
was developed, featuring ECHO publications and decisions. Facility visits for journalists were 
organised to theatres of ECHO operations, notably to Northern Iraq and Afghanistan. This 
yielded extensive coverage in both print and broadcast media. Also in close cooperation with 
11 
the Spokesman's Seryice, articles and letters to editors were drafted for publication in 
international newspapers such as the International Herald Tribune and Financial Times. 
Publications included: 
1. Annual Review, explaining ECHO's work over 1996 in accessible terms, illustrated with 
high-quality photographs and graphics, published in English, French, Spanish, Italian and 
German. 
2. ECHO News, a quarterly newsletter in French and English, with editions in other 
languages as appropriate, e.g. an issue on Bosnia in Serbo-Croat. 
3. Brochures on specific aspects of ECHO's work. Disaster Preparedness was highlighted, 
with a compact leaflet in three languages on this aspect of ECHO policy. In addition a 
leaflet was published using strong images from Magnum Photos to mark ECHO's fifth 
anniversary. Brochures were co-produced and co-financed with NGO partners. 
Audio-visual productions were financed, often as joint productions with ECHO partner 
organisations. ECHO has also developed a mobile exhibition that can easily be reconfigured 
and adapted to suit different contexts. 
The ECHO TV and radio awards scheme, launched in 1996, entered its second year, and 
culminated in a ceremony at the end of the Luxembourg presidency. An innovation this year 
was an 'Artists for Humanitarian Aid' project, for which artists donated paintings auctioned in 
a fund-raising campaign for family tracing projects in Rwanda. The auction took place in The 
Hague in October. 
The Framework Partnership Contract with NGOs and international organisations requires 
them to give visibility to ECHO as a donor, and we have successfully been developing 
strategies for highlighting which go beyond the obvious stickers. 
To promote cooperation with Member States, events including seminars and exhibitions were 
organised in both the Netherlands and in Luxembourg during the respective presidencies, 
always in close collaboration with the national authorities and partner organisations. 
ECHO Information's activities contributed significantly to raising the profile of the 
organisation and its activities, both in Member States and worldwide. 
4.2 Evaluation and Financial Audits 
Evaluation is seen by ECHO as an instrument that is intimately linked with its operational 
work and is designed to provide critical, relevant and independent data to assist in the 
decision-making process. 
During 1997, the Evaluation Unit spent much of its time on the preparation of two evaluations 
of all humanitarian operations financed by the Community, the first decided by the Council of 
Ministers on 22 November 1996, the second as provided for by Article 20 of Council 
Regulation (EC) No 1257/96 of 20 June 1996 concerning humanitarian aid. The two 
evaluations are planned to start at the beginning of the first quarter of 1998 and to last beyond 
the end of the year. The aims of the evaluations are as follows: 
12 
- to contribute to future reflection on the Union's humanitarian aid policy by drawing 
on the information gained from analysing the programmes and considering the 
viability and effectiveness of the policy pursued by the European Union in this area; 
- to improve the effectiveness and efficiency of the European Union's aid procedures 
and instruments, particularly with regard to devising, organising and using them; 
- to ensure feedback on formulation and operational monitoring of the European 
Union's future humanitarian aid policy. 
ECHO continued to carry out evaluations throughout the year, mainly of its humanitarian aid 
programmes in different parts of the world which amounted to a total of ECU 150.53 million. 
Most of these evaluations fell within the framework of the Commission communication to the 
Council and to Parliament on the link between emergency aid, rehabilitation and 
development. Priority was given to the need for systematic coherence and synergy between 
the different instruments at the Commission's disposal for rehabilitation and development. 
During the year ECHO continued to develop its methodology for evaluating humanitarian 
operations. Its manual of operations, published in 1996, is currently undergoing revision to 
adapt it in the light of the experience ECHO has acquired in the field of evaluation and to the 
requirements of Regulation No 1257/96. The revised manual will be published in 1998. 
At the end of 1997 ECHO carried out audits at the headquarters of those of its partners which 
had received 80.5% of ECHO's funds over the three preceding years. These control missions 
have proved to be very productive: not only did they allow ECHO to check the conformity of 
actual expenditure incurred with those agreed upon in the contracts, they also provided ECHO 
with additional information on the capacity of its partners. For them the control missions 
provided an additional communication channel for their financial and administrative 
personnel to ECHO's budget unit. 
In 1997 ECHO also introduced a second audit methodology, in order to complement the 
existing well established methodology for audits at the headquarters of ECHO's partners. This 
new approach is designed for the audit of ECHO-financed operations in the field. It has been 
tested in two joint field missions with major partners of ECHO and it is expected to be used in 
a limited number of missions with some of ECHO's partners in 1998. 
4.3 Databases and Management Systems 
Humanitarian assistance embraces a wide variety of scenarios, conditions, actors and 
requirements, spread across the surface of the planet. Proper communication is a must if all 
the various factors are to be mobilised with adequate cohesion to help the victims and make 
best use of the available resources. Modern electronic databases and IT-based communication 
and management systems increasingly have a key role to play. 
Since mid-1996, ECHO's database related to financial management, the Humanitarian Office 
Programme Environment (HOPE) is operational. The Contract Management System has been 
x extended to cover financial reports and analysis and is under redesign to integrate the new 
FPA. Several modules are expected to be commissioned in 1998, including one for 
humanitarian aid actions efficiency evaluation, one for financial audits, and one for 
operational actions follow-up. 
13 
1997 also saw the implementation of a revised system for exchange of information on funding 
decisions between the Commission and the Member States. This system aims to strengthen 
coordination by means of a 48-hour turn-around retransmission on internet of reports 
received, alongside the statistics and contract lists from HOPE already provided on internet 
since 1996. The 14 point fax system will be integrated into HOPE in 1998, allowing the 
production of aggregate and comparative statistics. 
The address of the ECHO home page on the Commission's World Wide Web server 
(EUROPA) is: http://europa.eu.int/en/comm/echo/echo.html 
4.4 Disaster Preparedness 
ECHO continued its global programme of disaster prevention and preparedness and adopted 
three financing decisions relating to 25 projects for a total sum of ECU 5 384 000. 
ECHO also began preparation of the DIPECHO programme (Disaster Preparedness ECHO) 
designed to put its new proactive, regional approach into effect. The programme covers the 
Caribbean, Central America, South-East Asia and Bangladesh and is intended to address 
shortcomings in disaster prevention and preparedness systems and help make them more 
coherent. Analyses were carried out for each of these regions and distributed first to ECHO's 
partners and then to the Member States and to European NGOs in July. The next step in the 
process is the preparation of framework programmes. The Centre for Research on the 
Epidemiology of Disaster (CRED) is helping draw up the programme documents under 
contract to ECHO. 
Lastly, ECHO made a contribution of ECU 1 616 000 to the Off-Site Emergency Programme 
(OSEP) for the prevention of nuclear accidents in Central and Eastern Europe. 
The Commission's disaster-preparedness activities take full account of the 1994 Yokohama 
recommendations for action plans, approved as part of the UN International Decade for 
Natural Disaster Reduction (IDNDR). Through them, human resources continue to be 
developed, response capabilities improved and demonstration microprojects implemented. 
A newly emerging area of activity in 1997 were the efforts to mitigate the effects of El Nino. 
ECHO and DG VIII co-chair a newly established inter-service group on preparedness for El 
Nino and have - based on an action plan for 1997/98 - committed resources to meet the 
humanitarian needs resulting from the predicted crisis. By the end of 1997 ECHO had 
committed more than ECU 21 million in response to the effects of El Nino. Of this amount 
ECU 20.6 million was spent on assistance to the victims of natural disasters in nine countries 
in Asia and Latin America, whereas about ECU 500 000 went into disaster preparedness 
measures in the regions most struck by El Nino. 
On an international level ECHO has been beginning to coordinate the efforts with the UN 
(especially the World Food Programme) and other major donors like the United States 
(USAID). 
4.5 Education and Training 
ECHO continued its support for the NOHA (Network on Humanitarian Assistance) diploma 
during 1997. Based on the Socrates model, the programme was launched in conjunction with 
DG XXII in 1994 with the aim of enhancing the professionalism of relief workers by 
14 
organising postgraduate-level university courses. The NOHA network focused its efforts 
during the year on the second edition of the diploma course manual which is due to be 
completed in February 1998. As a key instrument in the protection of victims of conflicts, the 
section on international humanitarian law has received special attention and ECHO continues 
to support its wider distribution. 
In view of the constantly rising demand for training in the field of relief work, ECHO has also 
considered other types of course involving a number of the parties involved, e.g. solidarity 
organisations, training and research centres. 
4.6 Policy Initiatives 
In 1997, ECHO began work on a draft paper on relief worker security and humanitarian 
space, which was the subject of extensive consultations with partners and external experts and 
so far has been extremely well received. Clearly, the lack of security is one of the major 
factors impeding operations in many parts of the world. It is, however, a complex and multi-
faceted issue, encompassing technical as well as political aspects. It is intended to issue the 
paper together with a communication to the Council in 1998, which will draw concrete 
conclusions to guide future policy. 
In common with many other donors, ECHO placed increasing emphasis in 1997 on the issues 
of gender and environment. The gender policy is based on a growing awareness of the 
central role that women should play in relief contexts and particularly with regard to 
distribution, as well as the need to focus on issues of reproductive health. Recent experience 
has also underlined the potentially negative impact, particularly of large and inappropriately 
located and planned refugee settlements, on the environment, which can increase tensions 
with local populations and undermine the economic basis of a given region for many years to 
come. Both of these issues are flagged in the "ECHO Humanitarian Aid Good Practices 
Manual" on which considerable effort was expended in 1997 and which is scheduled to be 
completed in the first part of 1998. Both issues also feature in the upcoming "Field Manual 
for ECHO Correspondents". 
The launch of an International Campaign in the field of international humanitarian law took 
place in Paris in June attended by Commissioner Bonino. The aim of the campaign is to build 
up a groundswell of opinion in favour of the creation of an International Criminal Court and 
to support the activities of the ad hoc Tribunals for former Yugoslavia and Rwanda on the 
grounds that, if peace is to be built on solid foundations, there must be an end to impunity, 
those responsible for war crimes must be sought out and justice restored. 
Events leading up to the signing of the Ottawa Treaty banning anti-personnel landmines 
were also a particular focus of advocacy efforts during the year. 
5. COORDINATION AND COOPERATION 
5.1 Inter-service Coordination 
In the interests of maximising the effectiveness of its humanitarian activities, ECHO devoted 
itself in 1997 to the implementation, at headquarters as well as in the field, of the 
recommendations on linking relief, rehabilitation and development (LRRD) contained in the 
Commission's communication of April 1996 and the European Council's conclusions of May 
1996. The inter-service country and regional task forces in particular have helped build close 
and fruitful cooperation between ECHO and the Commission departments dealing with the 
15 
long-term development of the countries or regions concerned. Some of the task forces have 
recently completed their mandate and handed over responsibility for ECHO's activities to 
other Commission departments (Haiti, Guatemala, Liberia). 
• As the file leader of the PISG (Permanent Interservice Group on Refugees), ECHO arranged a 
special meeting in October on Palestinian refugees which was attended by the EU Special 
Envoy to the Middle East, Miguel Angel Moratinos. The participants discussed the 
preparation by the Commission of a strategy paper on the issue. 
ECHO continued in 1997 to take part in the permanent Inter-service group on human rights 
(chaired by DG 1A) which focused mainly on general policy questions, country policy and 
project proposals. 
ECHO also participated in the newly created Steering Committee on Human Rights on 
directors level which will meet regularly in order to coordinate policy on Community level. 
More specifically ECHO contributed to the draft regulation on "Development and 
Consolidation and the Rule of Law and Respect for Human rights and Fundamental 
Freedoms" (COM 97/357) and the European Parliament's report on Human Rights in the 
World 1996/97. 
ECHO continued to participate in the Mine-Clearance Co-ordination Group (chaired by DG 
IA), which assists the development of coherent and consistent policies in relation to the 
Commission's very extensive engagement in mine action. 
5.2 European Parliament 
At the start of the year, ECHO's new Director appeared before the European Parliament's 
Committee on Development and Cooperation to present the broad strategic guidelines of its 
"ECHO Strategy 1997" paper (see above). 
The European Parliament has had considerable involvement with matters relating to 
humanitarian aid especially in connection with the Court of Auditors' Special Report No 2/97 
on humanitarian aid in the period 1992-95. 
Throughout the year, ECHO was a keen participant in discussions in the relevant committees 
on the recommendations that the Court of Auditors put forward in its Special Report. The 
variety of points of view in an atmosphere of constructive and open dialogue helped enrich the 
debate and led to suggestions of ways to make humanitarian aid more effective. 
On 21 February Parliament adopted a resolution on humanitarian aid, the role of ECHO and 
the Commission communication on linking relief, rehabilitation and development. The 
Commission has informed Parliament of the action taken in response to the resolution. 
On the operations side, the crisis in the Great Lakes region was the subject of special attention 
from the committee concerned, as it was in 1996. Commissioner Bonino appeared before the 
Committee on Development and Cooperation to report on developments in the crisis and its 
impact. Other theatres of humanitarian action, e.g. North Korea, Sudan, Sierra Leone and 
Afghanistan, were also debated in Parliament and were the subject of resolutions. 
Commissioner Bonino took part in the debate in the Committee on Women's Rights on 
"mainstreaming and humanitarian aid" against the backdrop of the plight of Afghan women. 
16 
5.3 WEU 
A seminar was held in December 1997 on cooperation between the EU and WEU in 
humanitarian crises, on the initiative of Commissioner Bonino and the German WEU 
Presidency. It made it possible to identify a series of practical measures which could be taken 
to enhance synergy between the two organisations in the event of a crisis. Possible follow-ups 
are being discussed. 
5.4 Relations with United Nations 
Since ECHO came into existence five years ago the United Nations system has been one of its 
major partners in the field. 
ECHO closely follows the work of UN organisations, both on operational and policy level. 
The special importance of UNHCR as a partner is reflected in the regular trilateral meetings 
US/ECHO/UNHCR (sometimes as a quadrilateral with WFP). The last meeting in June 1997 
dealt mainly with the application of the Memorandum of Understanding between UNHCR 
and WFP and budgetary questions. 
On a day-to-day coordination level ECHO has intensified contacts with DHA, especially 
MCDU and ReliefWeb, which has been supported financially in 1997. The envisaged reform 
of DHA's Consolidated Appeals Process has also been a point of interest for ECHO. 
On a general level the year 1997 for the United Nations system was largely driven by the 
discussions on the UN reform proposals by Mr Annan which will affect the humanitarian 
sector in a substantial way. It is anticipated that the replacement of DHA with the Office for 
Coordination of Humanitarian Affairs (OCHA) will lead to a focus on advocacy and policy 
functions in New York and coordination functions in Geneva, with the transfer of a number of 
operational functions to other agencies or parts of the UN system. 
In order to exchange views and sound out possible common ground on EU level, ECHO 
convened an informal meeting on UN reform in the humanitarian sector with the Member 
States in September 1997. Although it was agreed not to formalise the results, the meeting 
provided a useful start of a more in-depth policy discussion between ECHO and the Member 
States on matters of common interest. The discussion was followed up by bilateral contacts 
both with Member States and within the UN System. 
5.5 Relations with the United States 
The relationship between ECHO and the branches of US Government dealing with 
Humanitarian aid (namely USAID and State/PRM) went through two completely different 
phases in 1997. Whereas in the first six months there were some major (and sometimes 
public) disagreements on how to deal with the refugee situation in ex-Zaire, which led to a 
virtual standstill in communication on operational matters, the second half of 1997 on the 
contrary was more positive. 
The third Annual High Level Consultations on Development and Humanitarian Aid between 
the Commission and USAID provided a good starting point for an intensified contacts in the 
future. Amongst the conclusions was the decision to work together to mitigate the effects of 
El Nino, to coordinate activities regarding enhanced security of relief workers and to 
implement a staff exchange between ECHO and USAID. In the framework of the New 
17 
Transatlantic Dialogue the possibility of establishing a transatlantic NGO dialogue on 
humanitarian issues will be explored. 
5.6 Japan 
Contacts with the Japanese authorities dealing with humanitarian aid intensified in 1997. A 
regular exchange of data on the provision of humanitarian aid was agreed, in addition the 
possibilities of ECHO liaising with the Japanese in developing their NGO policy were 
discussed. 1998 will probably see further developments in that area. 
6. PROSPECTS FOR THE FUTURE 
ECHO will continue to try to improve its work, both on an operational and on policy level, 
alone and in coordination with our partners. This work will eventually lead up to a concept of 
ECHO beyond the year 2000. 
An important aspect to be kept in mind will be the necessity to go beyond a simplistic concept 
of humanitarian aid as always being the "right thing" to do. The practitioners of humanitarian 
assistance will have to become more aware of the implications of their actions, an approach to 
be summed up under the heading "do no harm". 
Realising that the obstacles to delivering humanitarian aid are, as always, considerable, and 
that massive violations of human rights are too often associated with complex humanitarian 
crises, advocacy on humanitarian principles and ethical issues has always been of central and 
growing importance to ECHO. This policy will have to be further reinforced, by seeking 
consistent action in the field from our partners; by contributing to the international debate on 
horizontal issues; as well as through information and visibility actions. 
One issue ECHO will be focusing on increasingly is gender, highlighting the problem in 
Afghanistan with a campaign launched on the initiative of the European Parliament and 
culminating on Women's Day, 8th March. Other issues in the public domain which ECHO is 
planning to support on humanitarian grounds are the "Ottawa process" for a total ban on 
landmines; and the establishment of an International Criminal Court. Generally speaking, 
special attention is needed to efforts establishing coherence between humanitarian actions and 
political positions taken by the EU or its Member states at the United Nations in New York. 
Still on the theme of obstacles to aid, the Commission is pursuing its work with a view to 
issuing in the course of this year à Communication on the security of relief workers, together 
with ECHO's working paper on the same issue, which is central to humanitarian work all over 
the world. 
Doubts as to the standards associated with the international humanitarian effort in a given 
situation can be extremely damaging to the identity we are trying to reinforce on the ground 
and which plays a large part in creating secure humanitarian space. With this in mind, 
ECHO will join with the UK Presidency to address the subject of ethics, which is an 
important dimension of this issue and which contributes to the debate on how to 
operationalise humanitarian principles in the complex environment which now characterises 
almost all of its major interventions. 
Linking with rehabilitation and development remains a major priority. A particular focus 
will be the creation of open-ended task ibices in the field, including the participation of 
interested Member States. It is worth notinu that successful transition has reached its logical 
end-point with the phasing out of ECHO aid in such places as Haiti and FYROM, and, in 
1998, also in Liberia and Iraq (subject in the latter case, to UN Res. 986 becoming fully 
operational). 
Visibility will move up a gear in 1998 with the strengthening of visibility plans for major 
projects, drawn up in cooperation between operational units and implementing partners: 
improving the ability of ECHO's information and awareness campaigns to reach the recipient 
countries. 
ECHO will continue to try to live up to the hope and expectations of the victims of armed 
conflict, natural disasters and complex emergencies, for whom the help of those better off 
often remains their only chance. 
19 
ANNEXES 
Statistical Overview 
Operations in budgetary year 1997 were on a significantly smaller scale than 1996, with 
decisions amounting to ECU 441 million as opposed to ECU 656 million the previous year (see 
annex 3). 
The share of funds between regions was more balanced in 1997, with ECHO's two main 
theatres of activity, former Yugoslavia and ACP countries, receiving 30.1% and 26.7% of the 
budget respectively (see annex 1). There was a significant increase of funding spent on 
preparedness for natural disasters (see chapter 4.4). 
Annex 2 shows the development of distribution of funds between ECHO's partners since 1993. 
Annex 3 provides a breakdown by budgetary sources since 1993. Although in a decreasing 
manner, the 8th EDF remains an important source of funds for humanitarian aid. 
Annex 4 illustrates more clearly the difference between decisions taken in a financial year 
(ECU 441 million in 1997) and contracts signed on the basis of decisions of the current as well 
as the previous financial year (ECU 612 million in 1997, of which ECU 298 million are based 
on 1997 decisions and ECU 314 million on 1996 decisions). 
Annex 5 shows the financial decisions in 1997 by regions, whereas annex 6 demonstrates the 
breakdown of contracts by partners. 
ECHO produces a set of detailed quarterly statistics which are available on request. Some 
summary statistics and contract lists are also available on the web page. 
<£ 
ANNEX 1 
FINANCIAL DECISIONS FOR HUMANITARIAN AID BY REGION 
As per: 31/12/97 
BB/TABEXC/RAPAN 97/ANNEX5.XLS 
c,t L 
ANNEX 2 
Humanitarian Assistance - Contracts by Financial Years 
• 1993 D1994 D1995 D1996 ED 1997 AS PER : 29/01/98 
350,000,000 
300,000,000 
250,000,000 
200,000,000 
150,000,000 
100,000,000 
50,000,000f OTHER INTERN. ORG. 
BB/TABEXC/RAPAN 97/ANNEX6.XLS 
ANNEX 3 
OVERVIEW OF FINANCIAL DECISIONS FOR EC HUMANITARIAN AID BY SOURCE OF FINANCE 1993-1997 
Source of 
finance I 
Budget Line Description 
LOME III NATIONAL INDICATIVE PROGRAMME (NIP) (1 ) 
LOME III ART 203 
FEOGA FOND EUR. D'ORIENTÀ ET DE GARANTIE AGRI. (3) 
B7-5000 HUMANITARIANS EMERGENCY AID 
B7-6000 PHARE 
LOME IV ART 164 and ART 254 (2) 
B7-510 DISASTER AID DEVELOPING COUNTRIES 
B7-210 ; (4) 
B7-511 EMERGENCY FOOD AID 
B7-211 (fj_ 
B7-514 HUMANITARIAN AID TO C & E EUROPE 
B7-214 \ (4) 
B7-515 HUMANITARIAN AID TO EX-USSR 
B7-215 : (4)_ 
B7-516 HUMANITARIAN ACTION IN 3RD COUNTRIES 
B7-216 (fj_ 
B7-517 REFUGEES & DISPL PERSONS IN DEV. COUNTRIES 
B7-217 (4) 
B7-219 OPERATIONAL SUPPORT, DISASTER PREPAR. 
B7-644 HUMANITARIAN AID TO WESTERN SAHARA POP. 
TOTAL 1993 
DECISIONS 
(in ECU) 
6,500,000 
1,296,000 
82,185.000 
70,033,195 
17,425,000 
385,000,000 
30,000,000 
8,713,000 
3,662,000 
604,814,195 1994 
DECISIONS 
(in ECU) 
263,268,603 
109,522,247 
46,000,000 
271,380,000 
50,000,000 
3,998.574 
20,000,000 
764,169,424 1995 
DECISIONS 
(in ECU) 
46,456,000 
238,339,500 
33,710,000 
236,670,000 
93,350,000 
38,540,000 
5,027,012 
692.092,512 
FOOTNOTES: 
(1) NATIONAL INDICATIVE PROGRAMME FOR SOMALIA 
(2) 5-YEAR ALLOCATION (1*91-95) UNDER LOME IV IS 250.000.000 ECU 
(i) DECIDED ON A CASE-BY-CASE BASIS 
(4) IN INS, THE BUDGET CHAPTER THAT CORRESPONDS TO ECHO BECOMES B7-200 INSTEAD OF B7-500 
(5) IN 1895. A S MECU DECISION WAS CANCELLED AND DE-COMMITTED UNDER BUDGET UNE B7-2I4. HENCE. NET DECISIONS IN 1985 FOR THE FORMER YUGOSLAVIA AMOUNTED TO 229.6 MECU. At par. 29/01/98 
1996 
DECISIONS 
(in ECU) 
3,487,000 
386.550,000 
187,150,000 
49,750.000 
21,420,000 
6,298,500 
2,000,000 
656,655,500 1997 
DECISIONS 
(in ECU) 
7,420,0001 
212,162,9541 
158,985,000| 
36,050,0001 
19,960,000| 
7,034,0001 
441,611,954 
800,000,000-, 
700,000,000 
600,000,000-4 
Z3 500,000,000 
o 
LU 
.£ 
£ 400,000,000 z r> o 
< 300,000,000 
200,000,000 
100,000,0004 Financial Decisions for EC Humanitarian Aid 1993-1997 
1993 1994 1995 1996 1997 
M/T«JCXOIUMN.t»ANNa3.]tlt 
ft| 
ANNEX 4 
MECU 
700 
MECU 
700 Amount of the Contracts Signed in 1996 and 1997 
As per : 07/01/98 
CONTRACTS SIGNED in MECU 
1996 1997 
Signature Years 
CONTRACTS SIGNED In MECU (SHARING BY FINANCIAL YEARS) 
Financial Years 
01997 
• 1996 
01995 
1996 1997 
Signature Years 
The 612 MECU signed in 1997 include 314 MECU from decisions taken in F.Y. 1996 
and 298 MECU in the F. Y. 1997. 
15 BB/TABEXC/RAPAN 97/ANNEX4 XLS 
ANNEX 5 
FINANCIAL DECISIONS FOR HUMANITARIAN AID BY REGION IN 1996 AND 1997 
1996 1997 
(1) COUNTRY/REGION DECISIONS IN ECU 
(2) EX-YUGOSLAVIA 
ACP 
ANGOLA 
BURKINA FASSO 
CHAD 
EASTERN & CENTRAL AFRICA 
ETHIOPIA 
GHANA 
GUINEA 
GREAT LAKES REGION 
HAITI 
IVORY COST 
KENYA 
LIBERIA 
MADAGASCAR 
MALI 
MOZAMBIQUE 
MAURITANIA 
NIGERIA 
SENEGAL 
SIERRA LEONE 
SOMALIA 
SUDAN 
ZAIRE 
C.I.S 
ARMENIA 
AZERBAIJAN 
GEORGIA 
BELARUS 
KIRGYZSTAN 
RUSSIAN FED 
TAJIKISTAN 
TCHERNOBYL Disaster 
UKRAINE 
EASTERN EUROPE 
ALBANIA 
J IRAQ 
! 
ASIA 
AFGHANISTAN 
BANGLADESH 
CAMBODIA 
CHINA 
INDONESIA 
INDIA 
LAOS 
! MYANMAR 
J NORTH KOREA 
| SRI LANKA 
| THAILAND 
VIETNAM 
I YEMEN 
NORTH AFRICA/MIDDLE EAST 
ALGERIA 
LEBANON 
MOROCCO 
PALESTINE/ISRAEL 
LATIN AMERICA 
COLOMBIA 
COSTA RICA 
CUBA 
! ECUADOR 
| GUATEMALA 
iHONDURAS 
IMONTSERRAT 
! NICARAGUA 
PANAMA 
PERU 278.040.000 
14,000,000 
300.000 
850.000 
14.000,000 
646.000 
140.000 
160.000 
205,430.000 
10,000.000 
340,000 
342.000 
1.900.000 
315,000 
2.100.000 
317,000 
80,000 
1,050,000 
550.000 
7.000,000 
5,000,000 
13,375.000 
145,000 
53,450.000 
5,070.000 
9,450,000 
10,205.000 
500,000 
3.920.000 
8.849,000 
14.156,000 
500,000 
800,000 
1.650.000 
1.650,000 
53,275,000 
41,100,000 
300,000 
2.490,000 
2.450,000 
120,000 
570.000 
500,000 
300.000 
500.000 
1.175,000 
3,420,000 
200,000 
150,000 
20.900.000 
7,000,000 
4,400,000 
500,000 
9,000.000 
19.090.000 
1.060,000 
400,000 
8,600,000 
300,000 
4,690,000 
450,000 
380,000 
1.750,000 
200,000 
1,260,000 
1,940.000 
2,000.000 
4.500.000 
5.012.500 
278.000 
r.RAND TOTAL 656,655,500 COUNTRY/REGION DECISIONS IN ECJ 
EX-YUGOSLAVIA 
ACP 
ANGOLA . 
ANTIGUA AND BARBUDA 
BURKINA FASO 
CHAD 
CHAD AREA (INSECTS INFESTATION) 
COMOROS 
DJIBOUTI 
EASTERN & CENTRAL AFRICA 
ETHIOPIA 
GAMBIA 
GHANA 
GREAT LAKES REGION 
GUINEA 8ISSAU 
HAITI 
HORN OF AFRICA (Air Transport) 
KENYA 
LIBERIA 
MADAGASCAR 
MALI 
MOZAMBIQUE 
NIGER 
PAPUA NEW GUINEA 
SIERRA LEONE 
SOMALIA 
SUDAN 
TOGO 
UGANDA 
C.I.S 
ARMENIA 
AZERBAIJAN 
BELARUS 
GEORGIA 
KIRGYZSTAN 
RUSSIAN FED 
TAJIKISTAN 
TCHERNOBYL Disaster 
UKRAINE 
EASTERN EUROPE 
ALBANIA 
BULGARIA 
CZECH REPUBLIC 
HUNGARY 
POLAND 
SLOVAKIA 
IRAQ 
ASIA 
AFGHANISTAN 
BANGLADESH 
CAMBODIA 
CHINA 
IRAN 
INDIA 
INDONESIA 
LAOS 
MYANMAR 
NORTH KOREA 
PHILIPPINES 
SRI LANKA 
THAILAND 
VIETNAM 
NORTH AFRICA/MIDDLE EAST 
ALGERIA 
JORDAN 
LEBANON 
PALESTINE/ISRAEL 
LATIN AMERICA 
BOLIVIA 
BRAZIL 
COLOMBIA 
CUBA 
ECUADOR 
GUATEMALA 
HONDURAS 
MEXICO 
NICARAGUA 
PARAGUAY 
PERU 
General Studies 
Evaluation 
Information 
Disaster Preparedness 
Miscellaneous 118.056.940 
33.000,000 
700,000 
470.000 
875,000 
2,900,000 
450,000 
70,000 
4,000,000 
4,620,000 
395.000 
456,940 
13,000,000 
240,000 
2.000,000 
2,000,000 
4,715,000 
1.070,000 
1.650,000 
7.600,000 
700,000 
2,900.000 
250.000 
3.700,000 
6,900,000 
20.954.000 
310.000 
2,131.000 
36.050.000 
2.100,000 
6.100.000 
117,000 
5,800,000 
2,750,000 
2,747.000 
14.900.000 
1,000.000 
536.000 
32.201.S14 
16.295.000 
1,800.000 
4,150.000 
12,500 
9.931.514 
12.500 
51.615.000 
8.120.000 
350.000 
5,535,000 
300,000 
3.000.000 
490,000 
2,055,000 
2,020,000 
675,000 
20,215,000 
980.000 
3.000,000 
3,250,000 
1.625,000 
18,150.000 
7.600.000 
600.000 
3.500.000 
6.450.000 
38.085.000 
3,600.000 
200.000 
4,500.000 
10.350,000 
3,075.000 
6,050.000 
900.000 
1.200,000 
2,800.000 
210,000 
5.200.000 
494.500 
1.400.000 
2,635,000 
7.034.000 
1 50.000 
GRAND TOTAL 441.611,954 
u 
ANNEX 6 
AS PER : 29/01/98 
1 EC CONTRACTS FOR HUMANITARIAN ASSISTANCE IN 1993- 94 -95 -96 -97 {Financial Years) 
TYPE OF 
CONTRACT 
EC COMMISSION-DIRECT 
COMMISSION/ECHO 
COMMISSION/AEC 
DELEGATIONS 
SUBTOTAL 
MEMBER STATES SPECIALIZED AGENCIES 
BELGIUM 
DENMARK 
FRANCE 
GERMANY 
NETHERLANDS 
SPAIN 
SWEDEN 
UK 
SUBTOTAL 
OTHER GOVERNMENTS 
PHILIPPINES 
FUI 
CROATIA/MACEDONIA 
SUBTOTAL 
EC NGOs (1) 
AUSTRIA 
BELGIUM 
DENMARK 
FINLAND 
FRANCE 
GERMANY 
GREECE 
IRELAND 
ITALY 
LUXEMBOURG 
NETHERLANDS 
PORTUGAL 
SPAIN 
SWEDEN 
UK 
SUBTOTAL 
OTHER NGOs (1) 
NORWAY 
AUSTRALIA 
FRANCE 
SWITZERLAND 
USA 
SUBTOTAL 
LOCAL NGOs (1) 
BOLIVIA 
IRAQ-MISC-1990 
JAMAICA 
LEBANON 
OCC. TERRITORY (ISRL) 
SUBTOTAL 
UNITED NATIONS 
UNCHS 
WFP 
FAO 
WHO 
UNHCR 
UNICEF 
UNDP 
UNRWA 
UNDHA 
PAHO 
SPECIAL UN OPERATIONS (IOM) 
SUBTOTAL 
OTHER INTERNATIONAL ORG. 
ICRC 
FIRC 
CARITAS INTERNATIONAL 
INTERNATIONAL MANAGEMENT GROUP 
LUTHERAN WORLD FEDERATION 
ORGANIZATION OF AMERICAN STATES 
THE WORLD COUNCIL OF CHURCHES 
WEU 
IOM 
SUBTOTAL 
Dacomllmrrwn» 
OttMCt 
TOTAL 1993 
ECU 
45,324.321 
8,318.645 
1.552.000 
55,194.966 
25.000 
0 
0 
1,700.000 
0 
0 
0 
3,521.195 
5,246.195 
0 
400.000 
10,000.000 
10,400.000 
NA 
25,098.353 
48,724.057 
NA 
88,634.711 
23.069,700 
886.500 
1,026.000 
16,406.961 
0 
15.212.795 
862.990 
19,021,832 
NA 
23.606,851 
262.550.750 
0 
0 
0 
744.692 
1,679.565 
2.424.257 
175,000 
2.520.000 
0 
800.000 
1,245.000 
4,740.000 
0 
71.318,781 
868,000 
9.250,000 
87,955,354 
13,631.598 
0 
6,000,000 
0 
0 
700,000 
189,723,733 
38,006,820 
26,001,135 
491,560 
0 
3,160,440 
0 
1,000,000 
0 
0 
68,659.955 
(985.688) 
597.954,168 1994 
ECU 
104.381.838 
11,581.577 
262,000 
116,225,415 
4,648.000 
100,000 
.500,000 
5.600,000 
0 
129,000 
0 
796,000 
11.773.000 
0 
0 
1,800.000 
1,800.000 
625,000 
35,256,810 
27,128.000 
0 
110,942.799 
23,757,380 
980.000 
2,335.250 
18,901.237 
445,266 
24.691,993 
1.945.000 
21,516,375 
350,000 
34.054.623 
302,929.733 
4.170,000 
250.000 
0 
1,237.140 
1,325,000 
6.982,140 
0 
0 
0 
0 
600,000 
600,000 
0 
47,355.716 
0 
500.000 
177.336,429 
11,908.135 
0 
450.000 
402,175 
2,149,450 
570,800 
240,672.705 
32,327.000 
37.163.603 
0 
0 
2.852.105 
107.730 
92.104 
0 
0 
72.542,542 
753.525,535 1995 
ECU 
87.289.368 
11,488,919 
740,000 
99.518.287 
6.600.000 
0 
0 
• 15.470.000 
0 
0 
0 
1,320,000 
23,390,000 
119,578 
0 
0 
119.578 
1.680.000 
34,740,000 
11.343,000 
280.000 
110.102.014 
22.579.000 
915.750 
3.413.000 
28.137.556 
1,085,721 
28,507.910 
3,380.720 
22.012,500 
1,450.000 
42,497,755 
312,124,926 
1,542,944 
0 
0 
3,211,500 
1,525.000 
6,279,444 
0 
0 
13.444 
0 
1,500.000 
1,513,444 
0 
32,675,000 
493.500 
500.000 
115,595,500 
7,939.000 
575,000 
240,000 
548,166 
910.000 
550.000 
160,026,166 
53,265,000 
22,285,066 
0 
0 
1,069.286 
636.676 
Q 
0 
0 
77.256,028 
680.227,873 1996 
ECU IN % OF 
TOTAL 
50.366.796 7.9% 
8,729,471 1.4% 
686,050 0.1% 
59.782.317 9.3% 
0 0.0% 
0 0.0% 
0 0.0% 
750.000 0.1% 
0 0.0% 
0 0.0% 
2.470.000 0.4% 
500.000 0.1% 
3,720,000 0.6% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
2,233,000 0.3% 
30,370,928 4.7% 
7,252.517 1.1% 
1,255.000 0.2% 
100.194.021 15.7% 
18.050,081 2.8% 
1.150,000 0.2% 
3.203,391 0.5% 
22,573,000 3.5% 
0 0.0% 
20.790,000 3.2% 
1.396,000 0.2% 
24,325,151 3.8% 
4.905.000 0.8% 
42.778.644 6.7% 
280,476.733 43.8% 
3,421,000 0.5% 
250,000 0.0% 
1.200,000 0.2% 
3,088.000 0.5% 
3,776,830 0.6% 
11,735.830 1.8% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
700.000 0.1% 
75,390,996 11.8% 
0 0.0% 
3,135.000 0.5% 
129.371,000 20.2% 
8,520,000 1.3% 
0 0.0% 
1,560,000 0.2% 
0 0.0% 
130,000 0.0% 
0 0.0% 
218,806.996 34.2% 
40,348,000 6.3% 
19,308,400 3.0% 
0 0.0% 
4.737.400 0.7% 
1.009.770 0.2% 
221,800 0.0% 
0 0.0% 
0 0.0% 
221 0.0% 
65,625.591 10.3% 
640.147.467 100% 1997 
ECU IN % OF 
TOTAL 
18,535,850 5.9% 
5,173.960 1.7% 
425,000 0.1% 
24.134.810 7.7% 
0 0.0% 
0 0.0% 
0 0.0% 
6.468.000 2.1% 
40,000 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
6.508,000 2.1% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
3.079,000 1.0% 
18.233.380 5.8% 
3.103.574 1.0% 
1,760,000 0.6% 
59.298.269 18.9% 
17.129,640 5.5% 
1,035,000 0.3% 
739,900 0.2% 
28.848.024 9.2% 
253.529 0.1% 
12.838,760 4.1% 
1,790,000 0.6% 
28.392.500 9.1% 
2,200.000 0.7% 
26,626.840 8.5% 
205.328.416 65.5% 
1,340,000 0.4% 
0 0.0% 
0 0.0% 
2.055.000 0.7% 
3.474,000 1.1% 
6.869,000 2.2% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
0 0.0% 
16,450.567 5.2% 
800.000 0.3% 
380.000 0.1% 
20.600.000 6.6% 
6.811,703 2.2% 
0 0.0% 
400,000 0.1% 
0 0.0% 
176,000 0.1% 
0 0.0% 
45,618.270 14.5% 
12.704,000 4.1% 
8.333.000 2.7% 
0 0.0% 
3.310.000 1.1% 
596,000 0.2% 
164,900 0.1% 
0 0.0% 
4,000 0.0% 
0 0.0% 
25.111,900 8.0% 
313.570.396 100% 
(1) INCLUDING NATIONAL RED CROSS ASSOCIATIONS 
(2) A FULL BREAKDOWN OF ECHO PARTNERS CAN BE FOUND IN ECHO'S QUARTERLY STATISTICS au 



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COM(98) 448 final 
DOCUMENTS 
EN 11 01 05 06 
Catalogue number : CB-CO-98-456-EN-C 
ISBN 92-78-38144-6 
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