Communication from the Commission to the European Parliament and the Council - Towards a European Consensus on Humanitarian Aid {SEC(2007) 781} {SEC(2007) 782}
Date: 2007-06-13
Institutions: European Commission
Subjects: aid policy, cooperation policy, help for victims, humanitarian aid, the EU's international role

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 13.6.2007 
COM(2007) 317 final 

COMMUNICATION FROM THE COMMISSION 
TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 

Towards a European Consensus on Humanitarian Aid 

{SEC(2007) 781} 
{SEC(2007) 782} 

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COMMUNICATION FROM THE COMMISSION 
TO THE EUROPEAN PARLIAMENT AND THE COUNCIL 

Towards a European Consensus on Humanitarian Aid 

1. 

HUMANITARIAN ACTION IN A CHANGING WORLD 

Humanitarian  action  has  a  centuries-long  tradition  of  solidarity  rooted  in  people 
working  to  aid  victims  of  crises.  The  objective  of  humanitarian  aid  is  to  save  lives 
and to provide immediate relief for people facing severe crisis whether as a result of 
natural  disaster  or  of  conflict.  Over  the  last  thirty  years  there  has  been  increased 
emphasis on principles, quality and professionalism in the provision of international 
humanitarian aid.  

However,  humanitarian  actors  today  face  a  number  of  specific  challenges. 
Humanitarian crises happen with greater frequency and severity in impact, linked to 
climate change, the changing nature of conflict, increasing competition for access to 
energy  and  natural  resources,  extreme  poverty,  poor  governance  and  failed  states. 
The  main  victims  are  civilians,  most  of  them  living  in  developing  countries.  There 
has been an increasing tendency for humanitarian and international law to be ignored 
or  blatantly  violated.  Encroachment  of  the  'humanitarian  space'1  adversely  affects 
access to vulnerable populations and the safety and security of humanitarian workers, 
two essential preconditions for humanitarian action and for the EU and its partners to 
be able to continue to get assistance to crisis-hit people. 

Humanitarian  aid  is  one  of  the  EU's  main  external  policies.  The  EU  collectively  is 
the leading humanitarian donor in the world and Europeans are strongly committed 
to  supporting  humanitarian  action.  This  places  particular  responsibility  and 
expectations on the EU. It is time to bolster European humanitarian action in the face 
of  these  developments  by  setting  out  an  explicit  EU  Consensus  on  the  common 
values  and  principles  that  underpin  EU  humanitarian  action.  It  is  also  opportune  to 
look  at  practical  ways  to  reinforce  complementarity  between  Member  States'  and 
Community  humanitarian  action  to  enhance  the  effectiveness  of  the  EU  aid  effort. 
The  European  Consensus  on  humanitarian  aid  should  promote  a  more  coherent, 
consistent and comprehensive approach to humanitarian aid. A clear commitment to 
good  donorship  practice  and  a  definition  of  the  roles  of  the  respective  actors  is 
essential to help preserve the humanitarian space and therefore our ability to continue 
to deliver aid to people in need. The consensus on humanitarian aid would therefore 
be distinct from and complementary to the European Consensus on Development of 
December 20052. 

In  developing  this  Communication,  the  European  Commission  reviewed  lessons 
learnt in its responses to crises3, and conducted an intensive consultation process of 

1 
2 
3 

For all underlined terms, please refer to definitions in the glossary in annex.  
“The European Consensus” (OJ C 46, 24.2.2006). 
See linked Commission Staff Working Paper SEC(2007) 781: Responses to crises. 

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its  humanitarian  partners,  which  showed  considerable  consensus  on  the  challenges 
faced  by  humanitarians4,  including  on  the  “responsibility  to  protect”  and  “human 
security”. 

2. 

A COMMON VISION 

2.1. 

VALUES, PRINCIPLES AND COHERENCE 

Humanitarian action is a moral imperative and a fundamental expression of the value 
of solidarity of European citizens with people suffering. In a world of more frequent 
and  severe  natural  disasters  and  where  human  suffering  as  a  result  of  conflict 
persists,  with  the  severest  impacts  on  the  poorest  people,  EU  actors  must  work 
together to ensure effective delivery of aid to the victims of humanitarian crisis and 
to reduce vulnerability.  

As  an  external  action  instrument,  humanitarian  aid  is  part  of  the  continuum  of  EU 
external actions. While it actively contributes to the protection and empowerment of 
victims of disasters, humanitarian aid is not a crisis management tool: the EU has a 
firm commitment to the fundamental humanitarian principles of humanity, neutrality, 
impartiality  and  independence.  This  principled  approach  is  essential  to  the 
acceptance  and  ability  of  the  EU  to  deliver  aid  to  the  victims  of  crisis  in  often 
complex  political  and  security  contexts.  The  perception  of  the  EU  and  its 
commitment to neutrality and independence in humanitarian action are clearly linked 
to  behaviour  and  engagement  on  the  ground.  All  EU  actors  involved  in  crisis 
response must work in coherence with these principles. 

Humanitarian aid differs from other types of assistance in that its sole objective is to 
provide an emergency response that specifically aims to save and preserve life and to 
prevent  and  relieve  human  suffering  wherever  the  need  arises  if  local  actors  are 
overwhelmed,  unable  or  unwilling  to  act.  Preparedness  and  local  response  to  crisis 
are  key  to  saving  lives.  While  the  principles  and  modalities  that  apply  to 
humanitarian  aid  are  specific  and  distinct  from  other  forms  of  aid,  coherence  with 
other  policy  instruments,  in  particular  those  related  to  crisis  management  and 
development cooperation must be ensured.  

Regrettably, global experience in recent years has demonstrated a persistent lack of 
respect  for  International  Law,  including  International  Humanitarian  Law.  The  EU 
agreed in 2005 operational guidelines on the promotion of compliance by third States 
and where appropriate non-state actors with International Humanitarian Law (IHL)5. 
These  cover  a  variety  of  actions,  from  assessment  and  reporting,  political  dialogue 
and  restrictive  measures  to  crisis  management  operations  and  the  fight  against 
impunity.  The  European  Commission  underlines  the  importance  of  a  proactive 
approach to preserving the conditions necessary for humanitarian action. 

4 

5 

See  linked  Commission  Staff  Working  Paper  SEC(2007)  782:  Report  on  the  consultation  on  a 
Consensus on European Humanitarian Aid policy. 
European Union Guidelines on promoting compliance with international humanitarian law (OJ C 327, 
23.12.2005, p. 4). 

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Committed and principled action 

The EU should: 
(cid:131)  uphold  and  promote  the  humanitarian  principles  of  humanity,  neutrality, 
impartiality  and  independence;  and  thereby  contribute  to  preserving  the 
humanitarian space and the ability to deliver aid; 

(cid:131)  advocate strongly and consistently for the respect of international law; 
(cid:131)  ensure  policy  coherence,  complementarity  and  effectiveness  by  using  its  tools 
and influence to address the root causes and prevention of humanitarian crisis.  

2.2. 

THE EU AND HUMANITARIAN AID  

In  2006  the  EU  collectively  was  the  biggest  donor  of  official  humanitarian  aid, 
contributing  over  € 2  billion  of  aid  for  humanitarian  response,  that  is  over  40%  of 
officially-reported  overall 
In  2006 
humanitarian  aid  from  the  EC  alone  reached  75  countries  and  an  estimated  100 
million people7 helping to save many lives around the world, notably in the so-called 
forgotten crises. The EU’s contribution is composed of Community humanitarian aid 
(managed  by  the  Commission)  and  the  provision  of  considerable  levels  of  bilateral 
humanitarian aid directly by EU Member States, with shared competence.  

international  humanitarian  assistance6. 

The effectiveness and impact of the provision of humanitarian aid by the EU could 
be considerably enhanced by strengthening the co-ordination reflex and practice and 
sharing  experience  actively.  This  would  enable  all  Member  States  to  improve  the 
quality of the overall humanitarian response. Coordinating positions in humanitarian 
fora  and  for  advocacy  makes  the  EU  voice  stronger.  The  EC’s  extensive 
humanitarian field presence is a valuable asset that provides a natural focal point for 
EU  representatives  working  together  in  emergency  response  and  preparedness, 
linking  coherently 
international  humanitarian  efforts  and  coordination 
approaches (‘the Cluster System’).  

into 

The aim of enhanced EU coordination is 

(cid:131)  to  act  in  a  concerted  way  to  strengthen  and  optimise  the  overall  humanitarian 

response; 

(cid:131)  to promote and support well-organised aid delivery strategies ; 
(cid:131)  to share understanding on needs and appropriate responses; 
(cid:131)  to  identify  gaps  and  ensure  strong  arrangements  are  in  place  to  react  before  a 

crisis occurs. 

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7 

As registered by the UN Financial Tracking system (UN-OCHA). 
Catchment  population  :  population  that  benefits  directly  and  indirectly  of  EC  funded  humanitarian 
assistance. 

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2.3. 

GOOD DONORSHIP 

Principled  donor  practice  must  be  firmly  embedded  in  international  efforts.  The 
Good  Humanitarian  Donorship  Initiative  (GHD)  launched  in  June  2003  provides  a 
useful  basis,  including  a  definition  of  humanitarian  aid,  a  firm  commitment  to 
upholding  the  fundamental  humanitarian  principles,  and  guidance  on  good  donor 
practice.  The  EC  considers  that  it  is  time  for  the  EU  as  a  whole  to  commit  more 
actively  to  the  substance  of  what  constitutes  good  donorship  and  how  this  is 
translated  into  practice.  This  work  should  be  linked  to  a  broader  Partnership 
approach.  Building  on  the  GHD  initiative  and  on  other  existing  standards  and 
processes8, the EU should support an inclusive approach to promoting best practice 
in humanitarian action through ‘Good Humanitarian Partnership’ that brings together 
Donors ("traditional" and "emerging") and Partners (international and local actors). 

The EU should: 
(cid:131)  confirm 

its  commitment 

implementation  of 
humanitarian  aid  in  the  framework  of  the  existing  ‘Good  Humanitarian 
Donorship Principles and Best Practice’;  

jointly  assess 

to,  and 

its 

(cid:131)  support  an  ambitious  international  approach  that  brings  together  donors  and 
partners to review principles, standards and best practice for humanitarian action 
(‘Good Humanitarian Partnership’). 

3. 

TRANSLATING PRINCIPLES INTO PRACTICE 

3.1. 

APPROPRIATE AND EQUITABLE AID, BASED ON NEEDS AND STANDARDS 

Since  the  perception  of  a  shortfall  of  humanitarian  aid  funding  persists  despite  a 
commitment  to  higher  levels  of  Official  Development  Aid  (ODA),  the  EU  should 
analyse both the quantity and effectiveness of funding. This funding should be based 
on agreed minimum standards of assistance and protection. 

In addition, humanitarian aid must be transparently allocated on the basis of needs. 
Currently there is no single framework or agreed approach to needs-assessment. The 
EC  applies  a  specific  global  needs  assessment  methodology  linked  to  its  annual 
programming  strategy,  and  conducts  an  annual  'Forgotten  Crises  Assessment'. 
Results  are  shared  with  all  interested  parties.  Detailed  needs  assessments  are 
conducted by a large network of ECHO field experts and desks in close consultation 
with other Commission services and Member States. 

Whenever  possible  best  practice  in  aid-effectiveness  means  that  aid  in  kind  should 
draw on local and regional resources and procurements and pre-positioned stocks to 
avoid undue environmental and financial extra-cost of shipping aid from Europe over 
long  distances.  Naturally,  decisions  on  where  to  purchase  aid  must  remain  context 

8 

Notably  the  'Principles  of  Conduct  for  the  International  Red  Cross  and  red  Crescent  Movement  and 
NGOs  in  Disaster  Response  Programmes'  (1994)  and  the  SPHERE  'Humanitarian  Charter'  and 
Minimum Standards. 

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specific.  Other  ‘innovative’  modalities  for  aid  delivery,  including  non-commodity 
based approaches (such as cash and vouchers) should also be considered.  

Providing effective aid 

The EU should: 
(cid:131)  commit to adequate provision of humanitarian aid, in line with its commitment 

to increase ODA; 

(cid:131)  base this on agreed minimum standards of assistance and protection; 
(cid:131) 

seek to establish a common framework for assessment of needs and sharing of 
expert analysis; 

(cid:131)  ensure  an  overall  balanced  response  with  a  special  focus  on  'forgotten  crises' 
and neglected needs; and to crises facing serious funding shortfalls where need 
is clearly demonstrated. 

3.2. 

PARTNERSHIP 

Partnership  is  key  to  the  effective  provision  of  humanitarian  aid.  EU  donors  work 
through multiple implementing partners: the European and local NGOs, the UN and 
the  Red  Cross  movement,  all  of  whom  have  essential  and  complementary  roles. 
Delivery  of  humanitarian  aid  in  challenging  circumstances  demands  quality, 
professionalism, experience and co-operation with others. All Partners of EU donors 
should adhere to international standards and guidelines applicable to the provision of 
aid, and should be transparent and accountable to the recipients, as well as to those 
providing funding. 

The  EU  recognises  and  fully  supports  the  central  role  of  the  United  Nations  - 
spearheaded by the Office for the Coordination of Humanitarian Affairs (OCHA) - in 
promoting a coherent international response to humanitarian crises and welcomes the 
concerted  efforts  made  to  reform  the  humanitarian  system.  Good  coordination 
between  partners  and  with  donors  particularly  in  the  field,  building  upon  broad 
participation  in  and  flexible  use  of  ‘the  Cluster  Approach,’  is  essential  for  an 
effective humanitarian response.  

Diversity and Quality in Partnership 

The EU should: 
(cid:131)  underline  its  intrinsic  support  for  a  plurality  of  implementing  Partners  -  the 

NGOs, the UN and the Red Cross Movement; 

(cid:131)  acknowledge  that  each  has  comparative  advantages  in  responding  to  certain 

situations or circumstances; 

(cid:131)  support the central coordinating role of the UN in advancing reforms aimed at 

improving the overall international humanitarian response.  

The defining criteria for selection of implementing partners should be: 
(cid:131)  professionalism;  
(cid:131)  capacity to respond to identified need (including presence and access);  
(cid:131)  adherence  to  the  humanitarian  principles,  international  guidelines  and  best 

practice in delivery of aid;  

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(cid:131)  specialist knowledge or mandate; 
(cid:131)  cost-efficiency; 
(cid:131) 
(cid:131)  accountability, including reporting transparently on results. 

local partnership and context;  

3.3. 

EFFECTIVENESS, QUALITY AND ACCOUNTABILITY 

Speed and  quality are both  critical  in delivering  humanitarian  aid.  We  have  a  clear 
responsibility  as  donors  to  ensure  that  aid  delivered  represents  the  best  available 
option  and  does  the  job  it  is  intended  to  do.  Aid  must  be  suitably  adapted  to  the 
specific  circumstances  of  a  particular  humanitarian  crisis.  Qualitative  input  and 
performance indicators, cost effectiveness criteria (eg overheads in proportion to aid 
going  to  recipients),  and  partnership  with  local  populations  in  managing  response 
particularly  in  protracted  crises,  are  all  elements  that  the  European  Union  needs  to 
consider  carefully  to  ensure  its  humanitarian  aid  is  implemented  effectively  to  best 
serve  people  in  need.  A  quality  approach  demands  a  high-level  of  assurance  from 
implementing  partners  through  the  application  of  partner  eligibility  criteria  and 
performance monitoring. The EC experience shows that it is possible and necessary 
to  combine  rapid  response  and  efficiency  in  humanitarian  aid  with  strict 
accountability  policy9,  through  partner-accreditation  systems  and  financial  control 
measures. This is an integral part of ensuring accountability to the European public 
and to recipients of aid. 

3.4. 

CAPACITIES TO RESPOND RAPIDLY 

Significant gaps in the global response capacity of the humanitarian community were 
highlighted  in  the  2005  Humanitarian  Response  Review,  some  of  which  are  being 
addressed  through  humanitarian  system  reform.  The  EU  needs  to  increase  its  crisis 
response capacities in a way that helps fill the remaining gaps. Its role is to support 
international  efforts  to  identify  and  plug  capacity  gaps  at  a  global  level  (eg  on 
logistics  and  pre-positioning),  ensuring  that  these  capacities  are  available  to  a  full 
range  of  partners.  This  would  include  contributing  to  regional  hubs  and  to 
arrangements for additional surge capacities in the case of major crisis, for example 
for transport or assessment teams. 

Long-term  capacity  building  measures,  including  early-warning  systems  at  local, 
national  and  regional  level,  joint  training  and  information  systems,  also  need  to  be 
reinforced. Support for local capacity-building, particularly in areas of prolonged or 
recurrent  crises,  should  focus  on  quality  and  sustainability  with  the  clear  aim  of 
increasing capability for local independent humanitarian action.  

EU  capacities  could  be  strengthened  by  applying  a  flexible  but  systematic 
operational  approach  to  ensure  timely  EU  donor  co-ordination  and  to  provide 
additional recourse to available capabilities, assets and expertise. Practical measures 
are  also  needed 
emergency 
to  ensure  complementarity  with 
rosters/deployment  teams.  The  European  Commission  making  full  use  of  its 

existing 

9 

See,  for  instance,  European  Court  of  Auditors,  Special  Report  3/2006,  concerning  the  European 
Commission humanitarian aid response to the tsunami.  

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permanent field presence should facilitate a rapid quality EU co-ordinated field level 
humanitarian response anchored in international relief efforts. 

3.5. 

USE OF CIVIL PROTECTION AND MILITARY ASSETS AND CAPABILITIES 

European  humanitarian  aid  is  a  policy  that  draws  on  various  Community  and 
Member States' instruments, including civil protection resources coordinated via the 
Monitoring  and  Information  Centre  (MIC)  in  liaison  with  the  EU  Presidency  or 
dispatched bilaterally; such resources have many applications besides forming part of 
a  response  to  humanitarian  disasters10.  Increasingly,  Member  States  use  their  civil 
protection  capacities  in  disaster  responses  outside  Europe,  reflecting  their  citizens' 
desire  to  use  available  capacities  for  the  purpose  of  international  solidarity.  In  a 
humanitarian  response  proper  coordination  between  different  European  actors  and 
instruments is essential to maximise their complementarity and coherence.  

Civil  protection  resources  can  provide  an  important  contribution  to  humanitarian 
actions based on humanitarian needs assessments and their comparative advantages 
in  terms  of  speed,  sector  expertise,  efficiency  and  effectiveness  especially  in  the 
early phase of relief response. When acting in a humanitarian context outside the EU, 
it is important that such resources support and complement the humanitarian actors 
in line with agreed international principles and guidelines – in particular in relation to 
neutrality, impartiality and independence. 

Civil protection resources and assets cover a wide range of state-owned assets, both 
military and civilian. Such assets are used in response to a formal request from the 
affected  state;  which  in  countries  at  war  or  fragile  states,  would  almost  certainly 
amount  to  acting  upon  the  invitation  of  a  warring  party.  This  in  turn  risks 
compromising the perception of the neutrality and impartiality of the relief effort and 
can  result  in  exposing  relief  workers  as  well  as  the  affected  population  to  attacks 
from warring parties, and in being denied access to the affected population not only 
in  the  current,  but  also  in  future  emergencies.  These  risks  need  to  be  carefully 
weighed against the immediacy of the needs of the population and the need for civil 
protection resources to cover them. Recourse to state-owned civil protection assets in 
complex emergencies is therefore rather the exception. Where civil protection is used 
in complex emergencies, it should be under the guidance of the UN and humanitarian 
organisations. A distinction should be made here between humanitarian interventions 
and an EU crisis management operation. 

As  it  is  vital  to  ensure  the  neutrality  of  humanitarian  action,  any  blurring  of  lines 
between  humanitarian  and  military  tasks  should  be  avoided.  Therefore,  military 
forces and assets should only be used as a "last resort" in humanitarian operations in 
line with international guidelines. 

Building on Comparative strengths in response to humanitarian situations 

The EU should:  
(cid:131)  commit to underpinning international efforts to map and plug identified gaps in 

10 

Council  Decision  2001/792/EC  established  the  Community  Mechanism  for  interventions  inside  and 
outside the EU. 

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capacities,  in  particular  related  to  transport,  communications,  logistics  and 
surge-arrangements for responding rapidly to disaster;  

(cid:131)  examine ways to strengthen its own rapid response capacity by working together 

building on existing comparative strengths; 

(cid:131)  adhere  to  and  promote  the  Military  and  Civil  Defence  Assets  and  Oslo 

guidelines;  

(cid:131)  reaffirm that Military and Civil defence/protection capabilities must be deployed 
in  a  way  which  complements  and  supports  the  work  of  humanitarian 
organisations, according to need/context for specialist tasks and support 

4. 

A JOINED-UP APPROACH TO AID 

4.1. 

DISASTER RISK REDUCTION - INCREASING PREPAREDNESS 

Given the increased frequency and recurrence of natural disasters notably due to the 
effects  of  climate  change,  affecting  the  most  vulnerable  groups  most  severely,  the 
promotion of disaster risk reduction strategies and preparedness activities is essential. 
Depending on the instrument used, this should be done at local, regional and national 
level  in  developing  countries.  Following  the  World  Conference  on  Disaster 
Reduction  held  in  Hyogo  (Japan)  in  January  2005,  there  has  been  renewed 
international  mobilisation  to  develop  more  effective  strategies  for  disaster  risk 
reduction  and  mitigation.  The  EU  clearly  recognises  this  and  is  shaping  its  aid 
for  community-based 
stand-alone 
approach  accordingly: 
through 
preparedness  activities,  such  as 
through 
the  EC's  DIPECHO  programme; 
mainstreaming of this dimension into EU humanitarian and development aid, which 
is reflected in the commitment of the EU Development Consensus to support disaster 
prevention and preparedness; and through advocacy.  

support 

Promoting Disaster Preparedness  

The EU should: 
(cid:131)  promote international efforts within the Hyogo Framework for Action to 

increase coping capacities at local, regional and national level through strategic 
planning and action; 

(cid:131)  mainstream disaster risk reduction in humanitarian and development operations 
and ensure that adequate EU funding is made available for disaster preparedness 
and risk reduction activities;  

(cid:131)  establish an overall EU policy approach to support action in this area. 

4.2. 

LINKING RELIEF, REHABILITATION AND DEVELOPMENT 

The recovery and reconstruction of countries in the aftermath of a disaster is a major 
challenge,  which  requires  structural  and  development  action  beyond  immediate 
emergency  aid.  Although  the  necessity  of  effectively  linking  Relief,  Rehabilitation 
and  Development  (LRRD)  thereby  contributing  to  poverty  reduction,  food  security 

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and  sustainable  development,  is  a  well-recognised  and  crucial  objective11,  making 
this happen in practice necessitates flexible and innovative transition strategies on the 
part of all aid actors. Development and humanitarian actors are increasingly present 
in  parallel  for  longer  periods,  with  the  phasing  out  of  humanitarian  aid  varying 
according  to  sector  or  region.  Increasing  mutual  awareness  of  the  differing 
modalities, instruments and approaches is critical to aid effectiveness and ensuring a 
smooth transition. With the introduction of new EC financing instruments from 2007, 
in  particular  the  Development  and  Cooperation  Instrument  and  the  Stability 
Instrument,  the  EC  has  a  renewed  opportunity  to  tackle  the  LRRD  challenge  by 
applying a policy mix in states emerging from crisis that includes early engagement 
of development programming and instruments that support early recovery alongside 
carefully planned exit strategies for humanitarian aid, thus ensuring a smooth hand-
over  to  more  structural  programmes.  Considering  the  EU  collective  experience  in 
dealing with countries in transitional contexts, there is a case for developing a more 
systemic policy in addressing LRRD situations. 

Reinforcing the link to other aid instruments  

(cid:131)  The EU should work together on a framework for advancing practical 

approaches to LRRD, based on experiences and lessons learnt;  

(cid:131)  identify a number of LRRD pilot countries for trialling implementation of case-

specific joint EU approaches; 

(cid:131)  improve cooperation between humanitarian and development agencies and other 
assistance actors, particularly at field level and in situations of complex crisis 
and state fragility. 

5. 

IMPLEMENTATION OF COMMUNITY HUMANITARIAN AID  

EC humanitarian aid is governed by Council Regulation (EC) No 1257/96 of 20 June 
1996,  which  provides  a  clear  mandate  to  provide  relief  and  protection  to  people 
facing humanitarian crises.  

The Commission seeks to add value to the effectiveness of the overall EU aid effort 
by: 

•  putting good donorship into practice itself and encouraging others to do so; 
•  promoting  quality  needs-based  responses  that  draw  upon  acquired  operational 

experience and lessons learnt from previous crises; 

•  developing and disseminating best practice and sectoral guidance;  
•  facilitating policy dialogue and exchange of operational information ;  
•  striving  continually  to  improve  performance  and  professionalism  in  the  delivery 

of aid as a learning organisation; and 

•  facilitating  EU  coordinated  efforts  to  contribute  to  effective  humanitarian 

response, including LRRD. 

11 

The European Consensus on Development commits the EU to linking emergency aid, rehabilitation and 
long-term development.  

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The  EC  is  committed  to  maintaining  both  a  high  quality  response  and  its  ability  to 
react  quickly.  In  order  to  do  this  it  is  reinforcing  its  pre-crisis  readiness,  including 
situational assessments and analysis of capacities to respond, as well as its own surge 
capacity linking to that of Partners. It is in this context that the reinforcement of DG 
ECHO’s experts' network is taking place and that 6 regional EC Delegations' crisis 
response capacities will be strengthened. 

The  Commission,  in  close  partnership  with  those  who  implement  humanitarian  aid 
on  the  ground,  should  maintain  its  role  as  an  active  'reference  donor'  and 
humanitarian player through its dedicated humanitarian DG. It must remain a strong 
voice on issues affecting humanitarian action, building upon the foundations of DG 
ECHO’s  operational  experience,  added-value  and  international  recognition.  This 
implies a reinforcement of capacity to work closely with others, and at the centre of 
the EU humanitarian effort. Some specific measures to reinforce rapid reaction and 
flexibility are currently under review. 

At  a  Community  level  a  number  of  policy  areas  link  closely  to  humanitarian  aid, 
which include: crisis management, food security, development policy, the promotion 
of human rights and human security, public health. The EC is committed to ensuring 
into 
that  policy  coherence  and  complementarity  are 
coordinated  operational  implementation  for  the  delivery  of  aid.  There  is  a  need  to 
build on synergies and avoid potential confusion or duplication of effort12.  

translated  consistently 

6. 

A EUROPEAN CONSENSUS ON HUMANITARIAN AID  

The European Commission invites the Council of the European Union and the 
European Parliament to: 

(cid:131)  adopt a joint declaration on the "European Consensus on Humanitarian Aid", 
based on the principles and approaches to active donorship outlined in this 
Communication; 

(cid:131) 

reaffirm the EU/EC commitment to working together in a co-ordinated, 
coherent and complementary way to ensure that this consensus is translated 
effectively into practice. 

On the basis of a European Consensus, the European Commission stands ready to 
propose a roadmap of specific implementing measures to be taken forward by the 
EU. 

By working together on a European Consensus on Humanitarian Aid and its practical 
implementation,  our  objective  is  to  enhance  the  EU  contribution  to  the  global 
humanitarian  response  in  partnership  with  others.  In  so  doing  we  reaffirm  our 
commitment to providing assistance to people in need as a fundamental expression of 
EU solidarity. 

12 

This is line with the objectives set out in the Commission's communication "Europe in the world : Some 
Practical Proposals for Greater Coherence, Effectiveness and Visibility" - COM(2006) 278, 8.6.2006. 

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*** 

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ANNEX 

GLOSSARY 

FORGOTTEN CRISES 

The  EC's  Forgotten  Crisis  Assessment  methodology  defines  "forgotten  crises"  as 
crises  that  receive  little  or  no  media  attention  and  whose  victims  receive  relatively 
little or no international assistance. 

GOOD HUMANITARIAN DONORSHIP INITIATIVE (GHD) 

The GHD Initiative outlines principles and good practice of humanitarian donorship 
and  was  endorsed  in  Stockholm  in  2003  by  Germany,  Australia,  Belgium,  Canada, 
the  European  Commission,  Denmark,  the  United  States,  Finland,  France,  Ireland, 
Japan,  Luxemburg,  Norway,  the  Netherlands,  the  United  Kingdom,  Sweden  and 
Switzerland.  Since  then,  Austria,  the  Czech  Republic,  Greece,  Italy,  Portugal  and 
Spain  have  also  joined  the  initiative,  which  through  peer  review,  dialogue  and 
exchange  of  experience  seeks  to  advance  implementation  of  good  donorship  in 
practice.  

HUMAN SECURITY 

General  Assembly  Resolution  60/1  of  24  October  2005  recognizes  "that  all 
individuals,  in  particular  vulnerable  people,  are  entitled  to  freedom  from  fear  and 
freedom  from  want,  with  an  equal  opportunity  to  enjoy  all  their  rights  and  fully 
develop their human potential. To this end, we commit ourselves to discussing and 
defining  the  notion  of  human  security  in  the  General  Assembly".  The  emphasis  on 
freedom  from  want  and  freedom  from  fear  is  meant  to  ensure  that  the  most 
vulnerable are empowered to manage their own security. 

HUMANITARIAN PRINCIPLES 

The  definition  of  the  principles  can  be  found  in  the  Code  of  Conduct  for  the 
International  Red  Cross  and  Red  Crescent  Movement  and  NGOs  in  disaster  relief 
and in United Nations General Assembly Resolution 46/182. They are derived from 
the Fundamental Principles of the Red Cross, particularly principles I (humanity), II 
(impartiality), III (neutrality) and IV (independence). 

Humanity 

The  principle  of  humanity  means  that  humankind  shall  be  treated  humanely  in  all 
circumstances  by  saving  lives  and  alleviating  suffering,  while  ensuring  respect  for 
the individual. It is the fundamental principle of humanitarian response. 

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Impartiality 

Provision of humanitarian assistance must be impartial and not based on nationality, 
race, religion, or political point of view. It must be based on need alone. 

Independence 

Humanitarian  agencies  must  formulate  and 
independently of (other) government policies or actions.  

implement 

their  own  policies 

Neutrality 

Neutrality  means  not  taking  sides  in  hostilities  or  engaging  at  any  time  in 
controversies of a political, racial, religious or ideological nature. 

United Nations General Assembly Resolution 46/182 lists the principle of neutrality, 
along side the principles of humanity and impartiality in its annex as a guide to the 
provision of humanitarian assistance.  

HUMANITARIAN SPACE 

The operating environment which humanitarian actors need on the ground in order to 
have  full  access  to  victims  to  be  able  to  deliver  assistance  and  to  offer 
protection,without endangering the safety and security of aid workers. 

HYOGO FRAMEWORK FOR ACTION 

In  January  2005,  at  the  World  Conference  on  Disaster  Reduction  (held  in  Kobe, 
Hyogo,  Japan),  168  Governments  adopted  a  10-year  plan  to  make  the  world  safer 
from natural hazards. The Hyogo Framework for Action (HFA) is a global blueprint 
for  disaster  risk  reduction  efforts  during  the  next  decade.  Its  goal  is  by  2015  to 
reduce substantially disaster losses – in terms of lives, and in the social, economic, 
and environmental assets of communities and countries. 

LRRD 

Linking  Relief,  Rehabilitation  and  Development  is  a  concept  that  strives  to  ensure 
that the exit and entry strategies of different aid actors/instruments join each other to 
cover  the  so-called  "grey  zone"  between  humanitarian  assistance  and  development 
cooperation  programmes  in  such  a  way  that  there  is  no  assistance  gap.  Successful 
LRRD requires assistance planning from the earliest stages (early recovery) to take 
into  account  later  stages  in  the  process  with  development  instruments  dovetailing 
with the emergency relief instruments and the rehabilitation phase.  

OSLO AND MCDA GUIDELINES 

The Oslo and MCDA guidelines are international guidelines designed to ensure that 
the impartiality and neutrality of humanitarian activities are preserved when Military 

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or  Civil  Defence  Assets  (MCDA)  are  used  in  support  of  humanitarian  operations. 
Their main aim is to establish the basic framework for formalizing and improving the 
effectiveness and efficiency of the use of foreign military and civil defence assets in 
international disaster relief operations. 

The  Oslo  Guidelines  concern  the  Use  of  Military  and  Civil  Defence  Assets  to 
support  United  Nations  humanitarian  activities  in  natural  disasters.  In  contrast,  the 
MCDA Guidelines deal with the use of military and civil defence assets to support 
United Nations humanitarian activities in complex emergencies (i.e. conflict zones). 

RESPONSIBILITY TO PROTECT 

General  Assembly  Resolution  60/1  of  24  October  2005  stipulates  that  "Each 
individual State has the responsibility to protect its populations from genocide, war 
crimes,  ethnic  cleansing and  crimes against humanity". It further provides that "the 
international  community,  through  the  United  Nations,  also  has  the  responsibility  to 
use  appropriate  diplomatic,  humanitarian  and  other  peaceful  means,  in  accordance 
with Chapter VI and VII of the Charter, to help protect populations from genocide, 
war crimes, ethnic cleansing and crimes against humanity". It also makes reference 
to the use of Chapter VII of the Charter, if peaceful means are inadequate. 

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