Joint Statement by the Council and the Representatives of the Governments of the Member States meeting within the Council, the European Parliament and the European Commission
Date: 2008-01-30
Institutions: Council of the European Union, Representatives of the Governments of the Member States
Subjects: cooperation policy, emergency aid, humanitarian aid, international affairs, international law

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II

(Information)

JOINT DECLARATIONS

COUNCIL

Joint Statement by the Council and the Representatives of the Governments of the Member States
meeting within the Council, the European Parliament and the European Commission

(2008/C 25/01)

THE EUROPEAN CONSENSUS ON HUMANITARIAN AID

The humanitarian challenge

1. Humanitarian aid is a fundamental expression of

the
universal value of solidarity between people and a moral
imperative.

increasing competition for access

2. Humanitarian crises include both man-made and natural
disasters. Their impact is increasingly severe, linked to a
number of factors, such as the changing nature of conflict,
climate change,
to
energy and natural
resources, extreme poverty, poor
governance and situations of fragility. The main victims
are civilians, often the poorest and most vulnerable
among them, mainly living in developing countries.
Humanitarian crises have
led to large numbers of
displaced people, both refugees and internally displaced
persons.

3. Humanitarian actors today face a number of major chal-
lenges. There has been an increasing tendency for Interna-
including International Humanitarian Law,
tional Law,
Human Rights Law and Refugee Law, to be ignored or
blatantly violated. The ‘humanitarian space’ that is needed
to ensure access to vulnerable populations and the safety
and security of humanitarian workers must be preserved
as essential preconditions for the delivery of humanitarian
aid, and for the European Union (EU) and its partners in
the humanitarian field to be able to get assistance
including protection to crisis-hit people, based on respect
for the principles of neutrality, impartiality, humanity and
independence of humanitarian action, enshrined in Inter-
national Law,
in particular International Humanitarian
Law.

4. Humanitarian aid provided by the EU is a shared compe-
tence between the Member States and the European Com-
munity (1). It builds upon a long tradition and reflects the
diversity of its actors. EU humanitarian action is framed in
an overall international approach that brings together the
United Nations, the Red Cross/Crescent movement, huma-
nitarian NGOs and others, in support of local responses
to humanitarian crises through a partnership approach
with the affected communities. National authorities in
countries faced with crisis retain the primary responsibility
for protecting populations confronting disaster.

5. Collectively the EU provides the largest share of current
official international humanitarian aid, comprised of Com-
munity and EU Member State bilateral contributions. As
such the EU has both the experience and the duty to
ensure that its overall contribution to the humanitarian
response is effective and appropriate, underpins the inter-
national humanitarian effort to deliver aid to people in
need, and addresses adequately the challenges
facing
humanitarian actors today.

6. The European Consensus on Humanitarian Aid provides a
common vision that guides the action of the EU, both at
its Member States and Community levels, in humanitarian
aid in third countries. This common vision is the subject
of the first part of the Statement; the second part sets out
the European Community humanitarian aid approach to
guide implementation of this vision at the Community
level and further specifies priorities for concrete action at
the Community level.

(1) Community humanitarian aid is based on Article 179 (Development
Cooperation) of the Treaty establishing the European Community.

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7. The European Consensus on Humanitarian Aid is jointly
agreed by the Council and the representatives of
the
governments of the Member States meeting within the
the European Parliament and the European
Council,
Commission.
In doing so, we seek to confirm our
commitment to the principles underpinning EU humani-
tarian aid, to enhance existing commitments for good
donor practice across the EU, in partnership with other
humanitarian stakeholders, and to put in place the founda-
tions for working more closely together to ensure the
most effective implementation of EU humanitarian aid in
the years to come.

12. Neutrality means that humanitarian aid must not favour

any side in an armed conflict or other dispute.

13. Impartiality denotes

that humanitarian aid must be
provided solely on the basis of need, without discrimina-
tion between or within affected populations.

14. Respect for independence means the autonomy of huma-
nitarian objectives from political, economic, military or
the sole
other objectives, and serves
to relieve and
purpose of humanitarian aid remains
prevent the suffering of victims of humanitarian crises.

to ensure that

PART ONE — THE EU VISION OF HUMANITARIAN AID

15. EU humanitarian aid is not a crisis management tool.

1. Common Objective

8. The objective of EU humanitarian aid is to provide a
needs-based emergency response aimed at preserving life,
preventing and alleviating human suffering and main-
taining human dignity wherever the need arises if govern-
ments and local actors are overwhelmed, unable or
unwilling to act. EU humanitarian aid encompasses assis-
tance,
to save and
preserve life in humanitarian crises or their immediate
aftermath, but also actions aimed at
facilitating or
obtaining access to people in need and the free flow of
assistance. EU humanitarian assistance is provided in
response to man-made crises (including complex emergen-
cies) and to natural disasters as needed.

relief and protection operations

9. Local

response to crisis and disaster

risk reduction,
including disaster preparedness and recovery, are essential
to saving lives and enabling communities to increase their
resilience to emergencies. Capacity building activities to
prevent and mitigate the impact of disasters and to
enhance humanitarian response are also part of EU huma-
nitarian aid.

2.2. International Law

International Law,

16. The EU will advocate strongly and consistently for the
respect of
including International
Humanitarian Law (1), Human Rights Law and Refugee
Law. In 2005, the EU adopted Guidelines on promoting
compliance with international humanitarian law. The EU
is committed to operationalising these Guidelines in its
external relations (2).

17. The EU recalls the commitment to the responsibility to
protect, in accordance with UN General Assembly Resolu-
tion 60/1 of 24 October 2005 (2005 World Summit
Outcome). Each individual state has the responsibility to
protect its populations from genocide, war crimes, ethnic
cleansing and crimes against humanity. The international
community,
through the United Nations, also has the
responsibility to protect populations from those crimes.
Where national authorities are manifestly failing to meet
the responsibility to protect, the international community
has confirmed that it is prepared to take collective action
through the UN Security Council.

2. Common Principles and Good Practice

2.1. Fundamental humanitarian principles

2.3. Good Humanitarian Donorship

10. The EU is firmly committed to upholding and promoting
the fundamental humanitarian principles of humanity,
neutrality, impartiality and independence. This principled
approach is essential to the acceptance and ability of the
EU, and humanitarian actors in general, to operate on the
ground in often complex political and security contexts.
The perception of the EU and its commitment to these
fundamental principles in humanitarian action are linked
to behaviour and engagement on the ground of all
EU actors.

11. The principle of humanity means that human suffering
must be addressed wherever it is found, with particular
attention to the most vulnerable in the population. The
dignity of all victims must be respected and protected.

in agreeing this European Consensus,

18. Whilst acknowledging a diversity of capacity, scale and of
specific modalities applicable to humanitarian aid within
all
the EU,
EU donors commit themselves to the Good Humanitarian
Donorship (GHD) Principles and undertake to work
together, and with others, to seek to apply donor best
practice (3). This includes the allocation of humanitarian
funding in proportion to needs and on the basis of needs
assessments.

(1) Member States are Parties to the Geneva Conventions and their Addi-

tional Protocols (1977).

(2) EU Guidelines on promoting compliance with international humani-

tarian law (OJ C 327, 23.12.2005, p. 4).

(3) The Principles and Good practice of Humanitarian Donorship,
Stockholm, 17 June 2003; endorsed by the OECD-DAC in April 2006.

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19. As the EU, we undertake to promote a substantive debate
about elements of best donor practice to ensure that good
donorship translates into better assistance for people
facing humanitarian crisis.

3. Common Framework to Deliver EU Humanitarian

Aid

3.1. Coordination, Coherence and Complementarity

20. The EU recognises that the global level of humanitarian
need requires a consolidated international approach in
partnership with others, including encouragement of aid
financing from new and emerging official donors and
private benefactors respecting the humanitarian principles.

21. Partnership is at the core of implementation of humani-
tarian aid and the EU therefore would welcome a broader
international partnership approach, which brings together
donors, implementing partners and other stakeholders, to
ensure effective humanitarian action, building on the
existing body of standards and best practice.

25. The EU strongly supports the central and overall coordi-
nating role of the United Nations, particularly the Office
for the Coordination of Humanitarian Affairs (OCHA), in
promoting a coherent international response to humani-
tarian crises. This role is considerably strengthened when
OCHA has an active field presence (and a Humanitarian
Coordinator is designated and deployed). Stronger EU
co-ordination would enhance the overall
international
humanitarian response,
including concerted efforts to
improve the humanitarian system, and would also rein-
force the EU ambition of working closely with other
humanitarian actors.

2.4. Relationship to other policies

22. The principles that apply to humanitarian aid are specific
and distinct from other forms of aid. EU humanitarian
aid, including early recovery, should take long-term devel-
opment objectives into account where possible, and is
closely linked to development cooperation whose princi-
ples and practices are outlined in ‘the European Consensus
on Development’ (1). EU humanitarian aid is delivered in
related to crisis
situations where other
management, civil protection and consular assistance may
also come into play. Hence, the EU is committed to ensure
coherence and complementarity in its response to crises,
making the most effective use of the various instruments
mobilised. Therefore the EU should enhance efforts to
raise awareness of and take into account humanitarian
principles and considerations more systematically in its
work throughout its Institutions.

instruments

2.5. Gender dimension in Humanitarian Aid

23. Recognising the different needs, capacities and contribu-
tions of women, girls, boys and men, the EU highlights
the importance of integrating gender considerations into
humanitarian aid.

24. The EU recognises that the active participation of women
to

and commits

essential,

in humanitarian aid is
promoting that involvement.

26. Therefore, without prejudice to their respective compe-
tences and traditions, EU humanitarian donors will work
together
through strengthened EU coordination and
promotion of best practice with a view to promoting the
EU common vision in a flexible and complementary way
that reinforces international efforts. This means that the
EU will seek to act in a concerted way to protect the
‘humanitarian space’ and to strengthen the overall huma-
nitarian
and
supporting well-organised delivery of aid where it is most
needed.

identifying

including

response,

gaps

27. EU humanitarian donors will endeavour to ensure good
donor practice through sharing understanding on need
and appropriate responses and through concerted efforts
to avoid overlap and to ensure that humanitarian needs
are adequately assessed and met. There should be a par-
ticular focus on coherence of response strategies to a
given crisis, and on working in partnership in the field.

28. The EU will focus on:

— real-time sharing of information on situation assess-
ments and response intentions for specific crises (at
headquarters level and in the field),

— enhancing policy-level exchange on aid and interven-
tion strategies, including in an appropriate forum for
regular policy debate in the Council,

— exchanges to develop best practice and share sectoral

expertise,

— ensuring that lessons are learnt systematically from

response to crises.

(1) Joint statement by the Council and the Representatives of the Govern-
ments of the Member States meeting within the Council, the European
Parliament and the Commission on European Union Development
Policy: ‘The European Consensus’ (OJ C 46, 24.2.2006, p. 1).

29. The EU will contribute to shaping the international huma-
nitarian agenda, and work together in international fora
and on advocacy efforts for humanitarian issues.

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30. Without prejudice to the humanitarian principles of
neutrality and independence, the EU commits to ensuring
policy coherence, complementarity and effectiveness by
its
using its influence and the full range of
disposal to address the root causes of humanitarian crises.
In particular, humanitarian aid and development coopera-
tion, as well as the various instruments available to imple-
ment stability measures, will be used in a coherent and
complementary fashion especially in transitional contexts
and situations of fragility, in order to use the full potential
of short- and long-term aid and cooperation.

tools at

3.2. Providing adequate and effective aid

31. Humanitarian aid should be transparently allocated on the
basis of identified needs and the degree of vulnerability.
This means that aid recipients should be identified based
on objectively verifiable criteria and that aid should be
delivered in such a way that defined priority needs are
matched by adequate funds.

a

rigorous

allocation of

32. In order to ensure an adequate, effective, equitable and
flexible
approach to
aid,
needs assessments must be applied both at global and
local
levels. Taking into account existing initiatives, the
EU will seek to promote a common understanding of
needs-assessments at the EU level
in order to improve
current practices and their application. The EU reconfirms
the importance of working closely with international part-
ners on needs-assessment. An analysis of global needs
requires agreement on a suitable methodology and
programming principles.
local
needs, particularly in the first stages of a sudden-onset
crisis, require appropriate field presence and experience,
reliable information and clear priority setting. The United
Nations Disaster Assessment and Coordination (UNDAC)
teams have a core role in field assessment when deployed.

Informed assessments of

33. The EU affirms its commitment to ensuring a balance of
response between different crises based on need, including
aid for protracted crises. Forgotten crises or crises where
intervention is particularly difficult and where the overall
international
inadequate,
warrant special attention from the EU. Neglected needs in
response to specific crises also deserve particular consid-
eration.

humanitarian

response

is

enhance the coping mechanisms of the affected popula-
tions.

35. Whenever possible, without unduly disrupting markets,
aid including food aid, should draw on local and regional
resources and procurements. Drawing on such resources
and procurements not only avoids additional environ-
mental and financial costs, but also involves local capaci-
ties and promotes the local and regional economy. Innova-
tive modalities for aid delivery, including non-commodity
based approaches (such as cash and vouchers), should also
be considered.

36. The EU will ensure that humanitarian aid pledges are
transformed into commitments and disbursements in a
timely way and clearly linked to needs assessments,
adjusted as required in response to evolving circum-
stances.

37. Humanitarian aid must be based on assessed need, rather
than specific targets. However, there is a substantive short-
fall of funding at a global level for responding to existing
humanitarian needs.
It is anticipated that the need for
humanitarian assistance may well increase in the short to
medium term as a result of demographic, political/security
and environmental
factors (including climate change).
Matching humanitarian needs is likely therefore to require
mobilisation of more resources internationally, including
from an expanded donor base.

38. Collectively, the EU already provides the largest share of
official international humanitarian aid. The EU is already
committed to an increase in overall Official Development
Assistance (ODA), from which humanitarian aid contribu-
tions are also drawn. The EU aims to demonstrate its
commitment
to humanitarian response by mobilising
adequate funding for humanitarian aid based on assessed
need. In this respect, an assessment of the adequacy of the
resources available to the European Community humani-
tarian aid would be appropriate in light of its comparative
advantage. Member States should also consider increasing
their bilateral humanitarian aid contributions within the
increase in overall ODA.

39. In responding to humanitarian need particular vulnerabil-
ities must be taken into account. In this context, the EU
will pay special attention to women, children, the elderly,
sick and disabled people, and to addressing their specific
needs. Moreover, protection strategies against sexual and
gender based violence must be incorporated in all aspects
of humanitarian assistance.

34. In the humanitarian context, emergency food aid is an
integral and important part of a short term humanitarian
response strategy to meet the needs of vulnerable popula-
tions. Consequently emergency food aid has to be based
on rigorous and transparent needs assessment, which
provides an analysis of the most adequate and appropriate
mix of food aid and non-food responses, and takes into
account the risk of unduly disrupting markets. Linking
food aid with other forms of livelihood support helps to

3.3. Quality, effectiveness and accountability (1)

40. Addressing the issues of speed and quality are both critical
in delivering humanitarian aid effectively. As donors we

(1) Principles, standards and evaluation criteria for humanitarian aid are

set out in the Annex to this Joint Statement.

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have the responsibility to ensure that aid delivered repre-
sents the best available option and is suitable for the
purpose it
is intended. Therefore, humanitarian action
should follow a set of internationally recognised standards
and principles. These have been encapsulated in the ‘Code
of Conduct for the International Red Cross and Red Cres-
cent Movement and Non-Governmental Organisations in
Disaster Relief’ (1) and broadly incorporated in the ‘Huma-
nitarian Charter’. Widely recognised minimum standards
in Disaster Response have been set out in general and per
sector including through the Sphere Project (2). These
principles for aid provision correlate to the internationally
accepted OECD-DAC criteria for the evaluation of Huma-
nitarian Aid (3). The EU also notes positively the work on
International Disaster Response Laws, Rules and Principles
(IDRL).

41. The EU subscribes fully to these sets of principles, stan-
dards and evaluation criteria, which alongside the GHD
initiative, constitute the general framework for ensuring a
quality approach to the provision of EU humanitarian aid.

such as health, nutrition, water

42. Policies in the different sectoral areas of humanitarian aid
and
intervention,
sanitation,
livelihood support and protection, must be
adapted to context and to recipients in order to have
maximum impact. The ‘do no harm principle’
is the
minimum requirement underlying such policies and aid
approaches, which also means that environmental and
other
longer-term considerations must be taken into
account from the outset even in short-term emergency
interventions.

43. Accountability in the context of humanitarian aid encom-
passes both accountability to European citizens on the
good use of public funds, and accountability to those in
need in the countries facing humanitarian crisis, to ensure
that the aid is suitably adapted to the circumstances and is
provided in a way that enhances prospects for recovery.

44. Qualitative input and performance indicators, cost effec-
tiveness criteria (e.g. overheads in proportion to aid going
to recipients) and, as far as possible, a participative
approach with local populations at the various stages of
the assistance programmes, particularly in protracted
crises, are all elements that the EU will consider carefully.

45. Accountability to people assisted commits the aid provider
to work within a framework of quality standards, princi-
ples, policies and guidelines, and promotes training and
capacity building activities, ensuring the involvement of
those assisted. A quality approach demands a high level of
assurance from partners
through the application of
partner eligibility criteria and performance monitoring

(1) ‘Principles of Conduct for the International Red Cross and Red Crescent

Movement and NGOs in Disaster Response Programmes’ (1994).

(2) Sphere ‘Humanitarian Charter’ and Minimum Standards.
(3) OECD-DAC Guidance for Evaluating Humanitarian Assistance in

Complex Emergencies.

during implementation of
the operation. Such quality
assurances should be achievable by partners, taking into
account their size and degree of specialisation.

46. Accountability measures

include

therefore

financial
control and reporting on humanitarian operations, evalua-
tion and measuring results and effectiveness, cost and
impact analysis of different
response options, quality
assurance, transparency, participative approaches to assis-
tance, and communication.

47. Regular evaluation and lessons learnt exercises reviewing
response to specific crises are valuable components in
enhancing the effectiveness of humanitarian aid. The EU
could usefully work together on both joint approaches
and on exchange of information on evaluation done by
each individual donor. The EU will therefore exchange
information on evaluation planning, results and responses,
including on quality of partnership and undertake joint
lessons learnt exercises in response to major crises invol-
ving multiple donors. The EU should collectively review
its overall humanitarian aid provision regularly, where
possible on a yearly basis.

3.4. Diversity and quality in partnership

48. In support of

local capacities, a swift and efficient
response to humanitarian crises depends on the avail-
ability of partners in the field, in particular civil society
and mandated international organisations, whose legiti-
macy, expertise and resources allow them to cope with a
particular aspect of a crisis.

49. The UN and its Relief agencies are at the core of the inter-
national humanitarian system as a norm setter, a coordi-
nator and also a major implementer of humanitarian aid.
Similarly, the International Committee of the Red Cross
has a specialised mandate based on international treaties
and is in many contexts, particularly in conflict situations,
one of the few — sometimes the only — partner with
access in order to be able to provide protection and to
deliver humanitarian assistance. Red Cross and Red Cres-
cent National Societies supported by the International
Federation of Red Cross and Red Crescent Societies are
particularly well-rooted in local communities and are
often best placed to provide an immediate response to
natural
disasters. Non-Governmental Organisations
(NGOs) are essential to the humanitarian response as they
deliver the majority of international humanitarian aid due
to their field-presence and flexibility, often with a high-
level of specialisation. They are also a direct expression of
active citizenship at the service of the humanitarian cause.

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50. The EU underlines its intrinsic support for a plurality of
implementing Partners — the UN, the Red Cross/Crescent
Movement and the NGOs — and acknowledges that each
has comparative advantages in responding to certain situa-
tions or circumstances. However, the EU also recognises
the need for close coordination, coherence and comple-
mentarity between implementing Partners on the ground.

51. Within the EU and internationally there are various
approaches to selection and quality assurance of imple-
menting partners in provision of humanitarian aid. EU
donors' criteria for selection of
implementing partners
include professionalism and management capacity, capa-
city to respond to identified need (technical and logistical
capacity, including presence and access), adherence to the
humanitarian principles and international law, as well as
international codes of conduct, guidelines and best prac-
tice in delivery of aid, specialist knowledge or mandate,
cost-efficiency, local partnership and experience in opera-
in coordination
tional contexts, readiness to take part
activities established for overall operational effectiveness,
accountability,
transparently on
results, and quality of implementation capacity, including
sound financial management. On the basis of
their
various traditions, EU Member States and the Commission
will exchange information about their practice of selection
of implementing partners.

reporting

including

52. The allocation of aid requires

specific administrative
procedures that vary from one donor to another. All EU
donors will seek to maximise the opportunity for flex-
ibility within their systems and streamline procedures to
the extent possible in order to reduce the administrative
burden on implementing organisations, whilst ensuring
quality in partnership and strong accountability in aid
delivery.

53. Local response to coping with humanitarian crisis is a
vital component. Local actors are on the front line when
disaster strikes suddenly and increasingly also at the core
of
the humanitarian response in complex emergencies.
The EU will examine how best it can offer support to
capacity-building activities for sustainable strengthening of
local disaster response, and encourage implementing part-
ners in fostering partnership with local organisations in
affected communities.

3.5. Capacity and Rapid Response

54. Within the EU, various capacities already exist for rapid
deployment of specialist
teams and rapid dispatch of
humanitarian aid or relief items. The EU seeks to avoid

duplication by reinforcing its efforts to address capacity
gaps building on existing systems in support of interna-
tional efforts, particularly the various regional
logistical
hubs.

55. The EU will

therefore examine ways to strengthen its
rapid response to humanitarian crises by working together
building on existing comparative strengths, in coordina-
tion with efforts made by the wider humanitarian com-
munity. The EU seeks to underpin international efforts to
map and plug identified response gaps, such as those
related to the international coordination of logistics, trans-
for
and
port,
responding rapidly to disaster. The EU will promote access
for the broad range of partners to common humanitarian
services.

surge-arrangements

communications,

56. In the first instance the EU will contribute by a trans-
parent and comprehensive mapping of all elements of its
current capacities, with the aim of getting an overview of
existing and potential capacities and the most efficient
way of utilising them.

3.6. Use of civil protection and military assets and capabilities

57. The use of civil protection resources and military assets in
response to humanitarian situations must be in line with
the Guidelines on the Use of Military and Civil Defence
Assets in complex emergencies (1) and the Oslo Guidelines
on the Use of Military and Civil Defence Assets in Interna-
tional Disaster Relief (2), in particular to safeguard compli-
ance with the humanitarian principles of neutrality,
humanity,
impartiality and independence. The EU will
promote a common understanding of these guidelines.
The EU will also encourage common training on interna-
tional law and the fundamental humanitarian principles.

C i v i l P r o t e c t i o n ( 3 )

58. European humanitarian aid may draw on various
Community and Member State instruments, including civil
protection resources, which cover a wide range of
State-owned and non-State assets. These assets, when
deployed in a humanitarian context in third countries, are
under civilian command and are in principle deployed in
response to a formal request from the affected State. They
are dispatched bilaterally, through the UN or through the
Monitoring and Information Centre (MIC) within the
framework of the Community Civil Protection Mechanism.
Increasingly, Member States use their civil protection capa-
cities in disaster responses in third countries, principally

(1) Guidelines on the Use of Military and Civil Defence Assets to support
United Nations Humanitarian Activities in Complex Emergencies
(March 2003).

(2) Guidelines on the Use of Military and Civil Defence Assets in Interna-
tional Disaster Relief — ‘Oslo Guidelines’ (re-launched by UN OCHA in
November 2006).

(3) In this context, the term ‘civil protection’ refers to relief operations only.
Besides relief operations, civil protection can also be used as a crisis
management tool under Title V of the Treaty on European Union and in
support of consular assistance.

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in natural disasters and technological and environmental
emergencies. Where deployed in any humanitarian crisis,
the use of civil protection resources should be needs-
driven and complementary to and coherent with humani-
tarian aid. Therefore, proper
coordination between
different European actors and instruments is essential, as
is respect for the overall coordinating role of the UN. At
EU level, the use of civil protection resources in the frame-
work of the Mechanism is subject to close cooperation
with the Presidency. Civil protection personnel deployed
for humanitarian purposes will always be unarmed.

59. In natural disasters and technological and environmental
emergencies, civil protection resources can provide an
important contribution to humanitarian actions based on
humanitarian needs assessments and their possible advan-
tages in terms of speed, specialisation, efficiency and effec-
tiveness, especially in the early phase of relief response.

including in situations of fragility,

60. In complex emergencies recourse to civil protection assets
should rather be the exception. Their use in complex
emergencies,
is espe-
cially delicate and sensitive as it risks compromising the
perception of the neutrality and impartiality of the relief
effort. This 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.

M i l i t a r y a s s e t s

61. Under very specific conditions, humanitarian aid may
draw upon military assets, notably for logistical and infra-
structure support mainly in the context of natural disas-
ters. The EU has developed a General Framework for the
use of Member States military or military chartered trans-
portation assets and ESDP coordination tools in support
of EU disaster response (1). Standard operating procedures
have been developed. The EU has also put
in place
arrangements for military support to EU disaster response
(identification and coordination of available assets and
capabilities) (2).
lines
to avoid a blurring of
between military operations and humanitarian aid,
it is
essential that military assets and capabilities are used only
in very limited circumstances in support of humanitarian
relief operations as a ‘last resort’, i.e. where there is no
comparable civilian alternative and only the use of mili-

In order

(1) General Framework for the use of Member States military and military
chartered transportation assets and ESDP coordination tools in support
of EU disaster response, doc. 8976/06.

(2) Military support to EU disaster response — Identification and coordi-
nation of available assets and capabilities, doc. 9462/3/06 REV 3 and
doc. 14540/06 + COR 1.

tary assets that are unique in capability and availability
can meet a critical humanitarian need.

62. Where military assets or capabilities are deployed in such
circumstances, the primary responsibility of the competent
authorities of the affected State as well as the overall role
and responsibility of the United Nations in coordinating
international relief assistance in third countries need to be
respected.

63. The EU reaffirms that a humanitarian operation making
use of military assets must retain its civilian nature and
character. This means that, while military assets will
remain under military control, the humanitarian operation
as a whole must remain under the overall authority and
control of
the responsible humanitarian organisation,
notably OCHA and the Humanitarian Coordinator (with
overall responsibility for the relief effort). This does not
infer any civilian command and control status over mili-
tary assets.

64. The EU considers that civil-military coordination, as the
interaction between civilian/humanitarian and
essential
military actors in humanitarian emergencies,
is vital to
protect and promote humanitarian principles. Coordina-
tion is
liaison and common
training.

facilitated by dialogue,

65. The EU affirms its commitment that the provision of
Member States military or military chartered transport
assets and/or other capabilities
for humanitarian life
to the
saving actions should be provided at no cost
affected State or receiving humanitarian actor. The EU
encourages increased efforts of humanitarian and military
actors to improve mutual understanding and respect on
respective mandates and roles and to liaise on potential
approaches to disaster response. To this end the EU is
committed to sending where needed and appropriate civil-
military liaison officer(s) to facilitate and actively engage in
civil-military coordination.

4. International Humanitarian Action

66. Humanitarian action is a collective responsibility at an
international level, involving many different organisations,
governments, local communities and individuals. For the
EU, supporting the development of the collective global
capacity to respond to humanitarian crises is one of the
fundamental tenants of our approach. The EU commits
itself not to duplicate existing international mechanisms.

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67. International efforts to ensure an adequate overall humani-
tarian response have been reinforced in recent years by
UN-led reforms of the humanitarian system, in coopera-
tion with other humanitarian actors and donors. The EU
reiterates its strong support
for humanitarian system
reform with the aim of ensuring a better response to
those in need.

The EU reaffirms that its efforts should be firmly anchored
in broader international approaches, with the UN-OCHA
in the central coordinating role. UN General Assembly
Resolution 46/182 remains a guiding reference in this
respect.

68. One important challenge is increasing the overall volume
of funding for humanitarian action to match the growing
needs. The EU supports the aim of enhancing the predict-
ability and flexibility of humanitarian financing both
through multilateral and direct
(bilateral) mechanisms,
each with comparative advantages. For this purpose new
financial mechanisms have been put in place, notably the
and
UN Central Emergency Response Fund (CERF)
Common Humanitarian Funds (1). These new mechanisms
are welcomed by the EU as a useful supplement to a range
of available financing instruments. The EU recalls that
contributions to the CERF should be additional to current
commitments (2), and should not displace direct financial
support available to other humanitarian operations and to
the full range of implementing partners.

69. The EU welcomes the emphasis given by the UN to
‘under-funded’ crises through a specific component of the
CERF aimed at channelling supplementary resources to
in particular where these correspond to
those crises,
‘forgotten crises’ (3), and recalls the importance of trans-
parent, needs-based allocation of CERF funding.

70. Another major focus of attention for improving the global
response to humanitarian crises is the attempt to ensure
better coherence and coordination of the various actors,
and a clear prioritisation and identification of response
gaps through the application of the ‘cluster approach’ (4)
and the strengthening of the Humanitarian Coordinator
system. The EU fully supports these efforts, recalling that
they should be broadly inclusive of all humanitarian
actors and should serve the purpose of improving huma-
nitarian aid delivery on the ground to those most in need.

71. Beyond the efforts pursued within the EU on humani-
tarian assistance, the EU fully recognises the need to rein-
force work closely with others on issues of good donor-
ship and effective humanitarian response and advocacy.

(1) Country-based pooled funds accessible to humanitarian implementing
partners and managed by the UN Resident Coordinator/Humanitarian
Coordinator.

(2) UN General Assembly Resolution 60/124 of 15 December 2005.
(3) Humanitarian Crises identified by the Commission's (DG ECHO)
Forgotten Crisis Assessment as having limited donor-response, overall
funding shortages and a low-level of media attention.

(4) Inter-Agency Standing Committee ‘Guidance Note on using the cluster
approach to strengthen humanitarian response’, 23 November 2006.
The cluster approach operates on two levels. At the global level, the
approach builds up capacity in identified key ‘gap’ areas. At the field
level, the cluster approach strengthens the coordination and response
capacity by mobilising clusters of humanitarian agencies and actors to
respond in particular areas of activity, each cluster having a clearly
designated and accountable lead.

72. The EU recognises that its contribution, as a Union of
traditional
(governmental) donors of humanitarian aid,
represents only a small part of the overall solidarity and
humanity so often expressed through private donations,
and extended family or group support to those in need.
An expansion of
the governmental donor base could
contribute significantly to meeting increasing humani-
tarian needs. All forms of humanitarian aid should be
given in accordance with the humanitarian principles. To
ensure that resources follow needs and to help reinforce
accountability, it is important that all donors report their
humanitarian aid
the UN-OCHA
contributions
managed Financial Tracking Service. Ways to record more
fully sources of funding that do not come via govern-
ments in the Financial Tracking system could usefully be
explored in order to maintain an accurate picture of the
overall humanitarian response.

to

73. The EU will continue to work closely with other major
donors of official humanitarian assistance both in the
Good Humanitarian Donorship initiative and through the
wide range of contacts between donors in both bilateral
and multilateral contexts. The EU will also encourage joint
and bilateral outreach efforts to expand the donor base
beyond its traditional limits.

74. The EU recognises that a key element in saving lives — in
particular in sudden onset natural disasters — is local
capacity. Therefore, it will strengthen its efforts to provide
more local capacity building to those best placed to
respond when disaster strikes.

5. The Aid Continuum/Contiguum

5.1. Reducing Risk
Preparedness

and Vulnerability

through Enhanced

75. The EU recognises that reducing risk and vulnerability
through enhanced preparedness is essential to preserving

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life, especially in zones vulnerable to natural disasters and
climatic change. The EU is committed to promoting
disaster risk reduction and disaster preparedness in devel-
oping countries through coherent and coordinated action
at local, national and regional level. Therefore the EU will
promote international efforts within the Hyogo Frame-
work for Action as well as support for the coordinating
role of the International Strategy for Disaster Reduction,
to increase coping capacities at all levels through strategic
planning and action.

76. The EU will establish an overall EU policy approach to
support action in this area with special focus on disaster
prone countries and regions and the most vulnerable
groups. The EU will support community-based prepared-
ness activities in humanitarian operations and mainstream
disaster risk reduction in its development policy based on
ownership and national
strategies of disaster prone
countries (1) (2).

5.2. Transition and Early Recovery and ensuring the link to

Development Aid

77. Recovery and reconstruction in the aftermath of a disaster
is a major challenge, which requires structural and devel-
opment action beyond immediate emergency aid. Thus it
is important to ensure that humanitarian, development
and other relevant aid instruments work better together,
in particular in situations of fragility and where commu-
nities are seeking to recover from the effects of crisis.
Achieving better linkage between Relief, Rehabilitation
and Development
requires humanitarian and
development actors to coordinate from the earliest phases
of a crisis response and to act in parallel with a view to
ensuring a smooth transition. It necessitates mutual aware-
ness of
and
approaches on the part of all aid actors, and flexible and
innovative transition strategies. At an international
level
the ‘early recovery cluster’ is looking specifically at addres-
sing the link between relief and development aid at the
earliest stages of disaster response.

different modalities,

instruments

(LRRD)

the

78. The EU will work together on advancing practical
approaches to LRRD. These approaches should be based
on experiences and lessons learnt and address improved
cooperation between humanitarian and development
including in the interna-
agencies and other aid actors,
tional community, particularly at field level and in situa-
tions of fragility or complex emergencies. In transitional

(1) The European Consensus on Development, paragraph 21.
(2) In this context, the EU notes positively the Build Back Better principles
outlined in ‘Key propositions for Building Back Better’ — A report by
the UN Secretary-General's Special Envoy for Tsunami recovery,
William J. Clinton, December 2006.

environments, there remains a need to ensure synergies
between humanitarian aid and development aid whilst
respecting
and
approaches.

objectives,

principles

distinct

their

PART TWO — THE EUROPEAN COMMUNITY AND HUMANI-
TARIAN AID

79. Community policy in the sphere of humanitarian aid is
governed by Council Regulation (EC) No 1257/96 of
20 June 1996 (3) which sets out the principal objectives of
the Community's humanitarian aid to third countries.

80. The Community will apply the common principles and
good practice defined in Part One, within the common
framework outlined to deliver EU humanitarian aid.

1. Comparative advantage

81. The Community can be distinguished by its comparative
advantage and added value, which enable complementarity
with bilateral policies of Member States and other humani-
tarian donors.

82. On behalf of the Community, the Commission provides

added value through the following roles:

83. First, a global presence. Implementation of Community
humanitarian aid is supported through a network of field
experts located world-wide, working out of field offices,
including Regional Support Offices. This makes
the
Community as a donor one of only a few with extensive
field-level specialist humanitarian presence. In addition the
Commission is able to draw upon the support of its exten-
sive network of Delegations. This allows the Community
to do its aid allocation function efficiently based on
presence,
(notably in assessing need), and
rapidity of response, and to assist partners actively on the
ground in improving the overall humanitarian response.
Furthermore, the Community is well positioned to rapidly
required EU Member States' bilateral
complement as
contributions in response to crisis.

expertise

84. Second, with the support of Member States, ensuring
the
coherence in Community policies,
meeting points between Community policies in the area
of humanitarian aid, development, food security, public
health and human rights,
including through Linking
Relief, Rehabilitation and Development (LRRD), disaster
risk reduction and preparedness strategies.

in particular at

(3) OJ L 163, 2.7.1996, p. 1.

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85. Third, promoting good humanitarian practice. Over the
years, the Community has acquired high levels of recogni-
tion as a reference donor and important contributor to
humanitarian action. The Community leads the way in
ensuring that humanitarian aid allocations are needs based
and that no humanitarian crisis is overlooked in the inter-
national humanitarian response. The Community is also
in a unique position to be able to encourage other huma-
nitarian donors to implement effective and principled
humanitarian aid strategies.

86. Fourth, the Community often has a comparative advan-
tage in being able to intervene in politically sensitive situa-
tions more flexibly.

87. Fifth,

in facilitating coordination. The Commission will
continue to promote close coordination between its own
activities and those of the Member States, both at deci-
sion-making level and on the ground. The Commission
will also support coordination with other donors and
work with the UN system to ensure strategic coordination
of both specific crisis responses and policy issues at head-
quarters and field level.

alongside further efforts to mainstream Disaster Risk
Reduction into longer-term development aid.

91. The Commission will maintain a high quality response
and the ability to react quickly. In order to do this it could
usefully reinforce its pre-crisis readiness, including situa-
tional assessments and analysis of capacities to respond
and surge arrangements, in particular making use of the
Commission's extensive humanitarian field expertise and
presence (ECHO experts and Regional Support Offices).
Commission arrangements will continue to provide added
value and should link to those of Member States and of
its implementing partners (including the United Nations
Disaster Assessment and Coordination teams).

the Red Cross/Crescent movement

92. The Commission works in close partnership with the
humanitarian organisations — in particular the UN relief
agencies,
and
NGOs that are best placed to implement humanitarian aid
on the ground. A strong partnership approach is
enshrined in the agreements governing the relations with
these organisations.

2. Putting good donorship into practice

93. For both civil protection and crisis response mechanisms
the Community needs to ensure the independence of
humanitarian action from other objectives such as poli-
tical and military.

88. On the assessment of needs, the Commission has devel-
oped a specific methodology for analysing general vulner-
ability and state of crisis at a comparative country level on
an annual basis — the Global Needs Assessment. This is
shared publicly and has been disseminated widely as ‘good
practice’ in the framework of Good Humanitarian Donor-
ship. This approach frames
the Community's annual
humanitarian aid programming strategy. Detailed needs
responses are
assessments
conducted, drawing on valuable operational expertise and
linking closely to implementing partners.

specific

shape

crisis

that

89. To ensure an equitable approach that pays particular atten-
tion to crises that are neglected in the overall humani-
tarian response,
specific
approach to identifying ‘Forgotten Crises’ and to ensuring
an appropriate funding response.

the Commission applies

a

90. The Commission,

through its disaster preparedness
funding, including DIPECHO, supported by the humani-
tarian aid budget, has acquired considerable practical
experience of disaster preparedness focussing on com-
munity-based activities,
raising,
emergency drills, local early-warning systems, training and
education. Such activities serve to mitigate the effects of
disaster upon vulnerable populations. This community-
based disaster preparedness approach should continue

awareness

including:

94. Financial accountability on the Community budget

is
stringent at
the EU level. Reporting requirements and
procedures for the humanitarian aid managed by the
Commission are therefore currently amongst
the most
thorough of any major official donor. This is a clear
requirement in terms of accountability to European citi-
zens that is carefully monitored by the institutions and
reflected by the fact that all Community financing deci-
sions are made public. The Community undertakes to
continue efforts to streamline and simplify its procedures
for humanitarian aid in order to reduce the administrative
burden on implementing organisations within the frame-
work of the applicable rules. Harmonisation of reporting
by the Community in the humanitarian sphere will take
place in accordance with the applicable provisions on
general financial accountability and control.

95. In order to guarantee and enhance the effectiveness and
consistency of Community and Member States' humani-
tarian aid systems, the Commission operates the ‘14 point
system’ for Member States to report their humanitarian
contributions. This reporting is harmonised with and
forwarded on to OCHAs Financial Tracking Service,
contributing to the overall quality of humanitarian
reporting.

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96. Member States and the European Parliament encourage
the Commission in implementing good donor practice
and undertake to look carefully at the question of the
adequacy of budget allocation for humanitarian aid under
future Financial Perspectives.

97. Concretely, the Community will seek in the medium term

to:

— strengthen its role in humanitarian advocacy,

— enhance efforts to raise awareness of humanitarian
principles/considerations in the work of the EU institu-
tions,

— act as a driving force, in particular within the EU, for
advancing a well coordinated ‘best practice’ approach
to the provision of humanitarian aid,

— facilitate participation of all Member States in their
provision of humanitarian aid through sharing of
accumulated experience and offering specific guidance
(e.g. on modalities, partners) as appropriate, with par-
ticular attention to encouraging participation of civil
society from the newly acceded EU Member States,

— work with others,

including the UN,

the Red
Cross/Red Crescent Movement
and humanitarian
NGOs, on ensuring better needs analysis and on iden-
tifying continuing response gaps,

— promote sharing of strategies, needs-assessment and
context analysis more systematically to improve collec-
tive performance to delivering aid better,

— promote

value-added sectoral policies based on
international best practice in specific policy areas
(e.g. children in emergencies, food aid, health),

— reinforce coordination with other policies and instru-
ments (LRRD, stability and civil protection instru-
ments),

— improve further its ability to respond rapidly and flex-

ibly in case of sudden-onset disaster,

— examine more closely the issue of transport and logis-
including pre-posi-

readiness,

tics and pre-disaster
tioning of stocks,

— continue work with partners to ensure quality and
accountability in humanitarian aid, while facilitating
flexible and rapid response where necessary,

— continue to streamline and simplify its administrative
requirements so as to strengthen collaboration with
partners and improve field effectiveness,

— ensure consistent understanding and application of
internationally agreed standards and guidelines in the
delivery of aid, supplementing those guidelines with a
tailor-made approach if gaps are identified,

— systemise lessons learning on crisis response, in addi-
tion to maintaining the regular programme of external
evaluation
to
increasing the effectiveness of Community funded aid
operations,

contributing

thereby

audit,

and

— communicate the impact and importance of Com-
munity humanitarian aid to the European public to
ensure continued high-levels of support from citizens.

98. The Community therefore seeks to add value by putting
good donorship and strong partnership into practice itself,
whilst encouraging others to do so, by promoting quality
needs-based responses that assimilate lessons learnt from
previous crises, and by continually striving to improve
performance and professionalism in the delivery of aid.

PART THREE — FINAL PROVISIONS

99. In agreeing this Statement, the Council and the Represen-
tatives of the Governments of the Member States, the
European Parliament and the European Commission
commit to work towards furthering the effectiveness of
EU humanitarian aid.

100. The European Commission will present an action plan for
practical measures to implement this Statement, in close
consultation with other relevant stakeholders and with
due consideration of the respective roles and competences
of all the actors involved in the provision of EU humani-
tarian aid.

101. EU progress in implementation of

this Consensus on
Humanitarian Aid should be discussed regularly in
Council and with the European Parliament, and be
reviewed five years after signature.

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ANNEX

Principles, standards and evaluation criteria for humanitarian aid

— Relief and protection should be provided in accordance with respect for Human Dignity, humanitarian values and
human rights, as established in international law. This requires that the provision of aid should not be influenced by
specific interests be they economic, political, cultural or religious. The assessment of the needs should in all cases be
the foundation stone of the humanitarian programme. This refers to the humanitarian principles of impartiality,
neutrality and independence from any political, economic or religious agenda, including the foreign policy of any
government or group of Governments (→ OECD-DAC criteria of impact, coverage and effectiveness).

— Quality emergency relief should be provided as close as possible to as many affected people as possible, as rapidly as
possible, given the resources available. This requires the development of appropriate and timely emergency prepared-
ness and response capacities (→ OECD-DAC criteria of timeliness, coverage and efficiency).

— Aid administrators should be accountable for the results and impact they achieve, not just for how resources are
managed. They should be accountable to affected people and to donor taxpayers. Professional planning, monitoring,
evaluation and audit are tools for achieving accountability and transparency (→ OECD-DAC criteria of impact, sustain-
ability, coverage and effectiveness).

— All affected people should be treated as dignified, capable human beings, rather than as helpless objects. The way aid
is provided may be as important as the aid itself. Affected populations should participate in the making of decisions
that affect their lives. Participation is both a universal right and good management practice (→ OECD-DAC criteria of
appropriateness and relevance).

— Aid should be provided in a manner that takes account of the complexity and variety of human vulnerabilities and
should include cross cutting issues such as gender and immediate and longer term impact on the environment. The
needs of men are not identical to those of women. Nor are the rights and needs of children the same as those of an
adolescent or an adult. Similarly, specific ethnic or religious groups may require particular approaches, considerations
and sensitivities, regarding e.g. the type of food provided for their consumption (→ OECD-DAC criteria of appropriate-
ness and relevance).

— While immediate life-saving and sustaining needs are an absolute priority, emergency relief should be a solid founda-
tion for longer term human development, including cultural and environmental development. Longer term planning
and coordination with developmental donors is needed to achieve integrated programmes that will link emergency
programmes with middle term programmes,
reconstruction and developmental
programmes. This should aim to assist populations re-establish and strengthen their own traditional coping mechan-
isms (→ OECD-DAC criteria of impact, connectedness, coherence and sustainability).

rehabilitation,

in particular

— Emergency resources should be managed professionally and with full attention to the cost implied. Good practice in
managing and supporting staff is a key management function, whereby staff safety, well-being, rights, dignity and
effectiveness are priorities (→ OECD-DAC criteria of (cost) efficiency and effectiveness).

— Potential unintended harmful effects of the humanitarian response (e.g. prolonging the conflict) or effects that
promote inequity amongst recipients of aid should be identified from the initial stages of the programme design and
should be pro-actively avoided (→ OECD-DAC criteria of effectiveness, appropriateness, relevance and impact).