COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU’s humanitarian action: new challenges, same principles
Date: 2021-03-10
Institutions: Directorate-General for European Civil Protection and Humanitarian Aid Operations (ECHO), European Commission
Subjects: EU action, climate change, coronavirus disease, emergency aid, establishment of peace, financing of aid, humanitarian aid, international humanitarian law, natural disaster, the EU's international role

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 10.3.2021  COM(2021) 110 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL on the EU’s humanitarian action: new challenges, same principles  
 
 
1.  Introduction: new and old challenges for EU humanitarian aid  

The European Union together with its Member States is the world’s leading humanitarian 
donor,  accounting  for  some  36%  of  global  humanitarian  assistance1.  In  a  world  where  the 
footprint of conflicts and disasters is expanding steadily, humanitarian aid is a key pillar of 
the EU’s external action and an important part of its ability to project its values globally.  

However, humanitarian aid is now facing an unprecedented set of challenges, exacerbated by 
the COVID-19 pandemic.  Humanitarian needs are at an all-time high, driven largely by 
the  resurgence  in  state-based  conflicts2,  combined  with  the  impact  of  climate  change, 
environmental  degradation,  global  population  growth  and  failed  governance.  Yet,  the  gap 
between  humanitarian  needs  and  the  resources  available  globally  is  increasing.  Basic 
norms  and  principles  are  being  challenged  as  rarely  before,  making  the  delivery  of  aid 
more difficult and dangerous.  

This  Communication  sets  out  how  the  EU,  working  with  its  diverse  humanitarian  partners 
and other donors, can step up to this challenge. 

Humanitarian needs: a rising curve – driven dramatically upward by COVID-19 and climate 
impacts 

Never has the EU’s global responsibility as a humanitarian actor been more pronounced than 
since  the  onset  of  the  COVID-19  pandemic.  In  2021,  150  million  people  are  projected  to 
have  fallen  into  extreme  poverty  as  a  result  of  the  pandemic3.  COVID-19  has  exacerbated 
pre-existing fragilities and inequalities and further amplified humanitarian needs. The United 
Nations  (UN)  estimates  that  almost  235  million  people  –  1  in  33  people  worldwide  –  will 
need humanitarian assistance in 2021. This is an increase of 40% from 2020 estimated needs 
(prior to COVID-19) and a near tripling since 2014. The number of forcibly displaced people 

1 In 2020, the combined EU and Member States’ allocated funding amounted to EUR 7.577 billion (https://fts.unocha.org/)   
2 Peace Research Institute Oslo, Conflict Trends: A Global Overview, 1946–2019. 
3 World Bank, Global Economic Prospects, January 2021. 

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has doubled since 2010, reaching 79.5 million by the end of 20194. The average humanitarian 
crisis  now  lasts  more  than  9  years,  and  many,  including  in  Europe’s  neighbourhood,  last 
considerably longer. As a result, too many humanitarian crises are ‘forgotten5’. 

The EU and its Member States have reacted by putting together, since April 2020, a  Team 
Europe6 response package of EUR 38.5 billion, EUR 3.49 billion of which are dedicated to 
the emergency response and humanitarian needs deriving from the pandemic.  

Climate  change  is  exacerbating  environmental  degradation  and  the  consequences  of 
unsustainable  management  of  natural  resources  while  adding  to  humanitarian  needs.  In 
addition  to  increasingly  frequent  and  severe  natural  hazards  triggering  disasters,  climate 
change and environmental degradation are among the root causes of conflict, food insecurity 
and  displacement.  In  2018,  around  108  million  people  required  international  humanitarian 
assistance  as  a result of  storms, floods, droughts  and wildfires7. By  2050,  over 200 million 
people could need humanitarian assistance every year as a result of climate-related disasters8 
and the socioeconomic impact of climate change. 

A growing funding gap – and a stubbornly narrow donor base 

In 2020, all UN humanitarian appeals jumped to almost EUR 32.5 billion – the highest figure 
ever, owing also to the impact of COVID-19. Moreover, there is a funding gap of EUR 17.5 
billion – more than half the total. According to the UN, an initial EUR 29 billion are needed 
to cover the UN humanitarian appeals in 20219. While the EU and some other donors have 
substantially stepped up their efforts in recent years, with global humanitarian funding for the 
UN humanitarian appeals increasing from EUR 4.1 billion in 2012 to EUR 15 billion in 2020, 
the global humanitarian funding gap has nevertheless been expanding rapidly. This gap 
is  likely  to  grow  further  as  donor  economies  will  remain  under  stress  from  the  economic 
and social fallout from COVID-19. Some major donors have already announced cuts in their 
aid budgets or in their contributions to major crises. Worryingly, global humanitarian funding 
continues  to  rely  heavily  on  a  very  limited  number  of  donors:  in  2020,  the  top  ten  donors 
globally accounted for 83% of reported funding10. The same applies inside the EU, where the 
overwhelming  bulk  of  the  overall  EU’s  humanitarian  funding  comes  from  the  budget  of  a 
very small number of Member States and that of the EU11. This is not sustainable.  

4 UNHCR, Global Trends, Forced Displacement in 2019, https://www.unhcr.org/globaltrends2019 
5 Humanitarian crises marked by limited donor-response, overall funding shortages and a low-level of media attention. 
6 Team Europe is composed of the EU, its Member States, their diplomatic network, finance institutions including national 
development banks and implementing agencies, as well as the European Investment Bank (EIB) and the European Bank for 
Reconstruction  and  Development  (EBRD).  More  info:  https://ec.europa.eu/international-partnerships/topics/eu-global-
response-covid-19_en#header-2844 
7 World Meteorological Organization, State of Climate Services 2020 Report.  
8 International Federation of Red Cross and Red Crescent Societies, The Cost of Doing Nothing, September 2019. 
9 United Nations, Global Humanitarian Overview 2021 
10 UN OCHA, Financial Tracking Service, https://fts.unocha.org/ 
11 https://fts.unocha.org/ 

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Impediments to humanitarian aid access and delivery 

In  many  conflicts,  direct  and  often  deliberate  attacks  by  belligerents  against  civilians, 
hospitals and schools in violation of international humanitarian law are increasing. In 2019, 
there were 277 reported attacks against humanitarian aid workers, with 125 killed12. In many 
crises, aid agencies also have to deal with administrative impediments and other restrictions, 
which  may  limit  their  ability  to  access  affected  people.  COVID-19  lockdowns  and  ensuing 
movement  restrictions  have  added  another  layer  of  challenges  to  the  delivery  of  aid  to 
affected populations.  

In  light  of  these  trends  and  challenges,  the  EU  must  give  renewed  impetus  to  its 
humanitarian aid policy so that it can  more  effectively  address  growing humanitarian 
needs  and  support  a  better  enabling  environment  for  the  delivery  of  principled 
humanitarian aid. At the same time, it will continue to work closely with development 
and peacebuilding actors to promote long term solutions. 

2. Building on a solid foundation: the tried and tested principles of humanitarian aid 

The EU’s humanitarian aid rests on a solid legal foundation and a set of core principles and 
common objectives. It will continue to adhere strictly to the universal humanitarian principles 
of  humanity,  neutrality,  impartiality  and  independence,  as  enshrined  in  international  law. 
Ensuring respect for international humanitarian law by state and non-state actors will remain 
an essential objective of the EU’s humanitarian aid policy. 

The  European  Consensus  on  Humanitarian  Aid13  remains  the  reference  framework  for  the 
EU’s humanitarian action. Together with the Humanitarian Aid Regulation14, the Consensus 

12 Humanitarian Outcomes, Aid Workers Security Database, https://aidworkersecurity.org/incidents/report 
13 http://eur-lex.europa.eu/legal-content/EN/TXT/?qid=1431445468547&uri=CELEX:42008X0130(01). 

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sets out the specific nature and mandate of humanitarian aid: EU humanitarian aid is provided 
solely on the basis of needs, in line with the principles of good humanitarian donorship15. As 
also  recalled  in  the  EU’s  integrated  approach  to  external  conflicts  and  crises16,  EU 
humanitarian aid is not influenced by any political, strategic, military or economic objective. 
This is also essential to ensure that aid can be delivered to people affected by crisis in often 
complex political and security environments.  

While humanitarian aid is a key part of the EU’s overall response to crises, the EU safeguards 
the  distinct  nature  of  its  humanitarian  aid,  while  further  deepening  the  link  with  EU 
development assistance, conflict resolution and peacebuilding initiatives. 

The EU’s humanitarian response will continue to abide by the principle to ‘do no harm’ to 
affected populations and the environment17 and strive to be conflict-sensitive so that it does 
not  inadvertently  reinforce  conflict.  It  will  continue  to  promote  and  strengthen  effective 
humanitarian civil-military coordination so that humanitarian space is safeguarded.   

Humanitarian aid is often the main form of assistance provided to people affected by crisis. 
With  needs  rising  and  aid  budgets  stretched  to  their  limits,  the  risk  that  some  people  and 
communities  will  be  left  behind  is  very  real.  The  EU  will  continue  to  ensure  a  balanced 
response  to  needs  and  will  continue  to  devote  15%  of  its  initial  humanitarian  budget  to 
‘forgotten crises’. 

The  continued  integration  of  protection  for  people  caught  in  crisis  situations,  including 
through  the  prevention,  mitigation  and  response  to  sexual  and  gender-based  violence  and 
sexual  exploitation,  abuse  and  harassment,  will  remain  a  strong  feature  of  the  EU’s 
humanitarian aid, in line with the EU Gender Action Plan18. The EU will continue to support 
the global Call to Action on Protection from Gender-Based Violence in Emergencies19. It 
will  also  uphold  its  commitments  to  rapidly  address  any  type  of  misconduct  in  the 
international aid sector and increase accountability20.  

People will remain firmly at the centre of the EU’s humanitarian aid, with opportunities for a 
meaningful participation of aid beneficiaries in decisions that affect them. The EU is also 
committed  to  meeting  the  needs  and  rights  of  specific  groups  including  women,  children, 

14  Council  Regulation  1257/96  defines  how  the  EU’s  humanitarian  assistance  is  delivered;  it  establishes  that  the  EU’s 
humanitarian assistance should reach people affected by disaster or conflict, irrespective of their race, ethnic group, religion, 
sex, age, nationality or political affiliation and must not be guided by, or subject to, political considerations. 
15 https://www.ghdinitiative.org/ghd/gns/principles-good-practice-of-ghd/principles-good-practice-ghd.html 
16 https://data.consilium.europa.eu/doc/document/ST-5413-2018-INIT/en/pdf 
17 The European Consensus on Humanitarian Aid calls for the integration of environmental considerations in humanitarian 
aid sectoral policies and interventions.  
18 https://ec.europa.eu/international-partnerships/news/gender-action-plan-putting-women-and-girls-rights-heart-global-
recovery-gender-equal-world_en 
19  The  EU  led  the  Call  to  Action  (https://www.calltoactiongbv.com/)  from  June  2017  to  December  2018  and  issued  an 
operational  guidance  on 
in  EU-funded  humanitarian  actions: 
https://ec.europa.eu/echo/sites/echo-site/files/2019-01_disability_inclusion_guidance_note.pdf 
20 The EU has endorsed the ‘Commitments made by donors to tackle sexual exploitation and abuse and sexual harassment in 
the  international  aid  sector’  and the  2019  ‘Development  Assistance  Committee  Recommendation  on  Ending  Sexual 
Exploitation, Abuse, and Harassment in Development Co-operation and Humanitarian Assistance’. 

inclusion  of  people  with  disabilities 

the 

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older  persons  and  people  with  disabilities.  This  contributes  to  the  EU’s  overall  equality 
agenda21, a top priority of the European Commission.  

Access for children in crisis settings to safe and consistent schooling is crucial, yet this is 
far from being a reality everywhere.  Educational establishments – and students themselves – 
have increasingly become a deliberate target of violent attacks, notably in the Sahel region. 
Meanwhile, although digital and remote solutions have helped ensure a level of continuity for 
students  in  many  places  during  the  COVID-19  pandemic,  access  to  these  opportunities  has 
been elusive for many recipients  of humanitarian aid,  with  refugee and internally displaced 
children facing particular challenges in accessing education. The UN estimates22 that almost 
24 million  children  and  young  people  in  humanitarian  crisis  situations  are  at  risk  of  not 
returning to school due to COVID-19. Girls are even at a higher risk, as not attending school 
in  many  cases  leads  to  early  and  forced  marriages23.  The  EU  will  continue  to  put  a  strong 
focus on supporting child protection and education in emergencies, in particular access to 
education  for  girls  in  humanitarian  contexts.  It  will  continue  to  allocate  at  least  10%  of  its 
annual humanitarian budget to this priority (up from just 1% in 2015) and will fully engage in 
the ‘Safe Schools Declaration24’.  

Finally, effective multilateralism25 and UN-led coordination will remain central to the EU’s 
humanitarian  action,  as  key  enablers  of  a  principled  and  coherent  humanitarian  response. 
Furthermore, the EU will continue to rely on a strong network of diverse partners, including 
non-governmental organisations, UN agencies, funds and programmes and other international 
organisations, as well as specialised agencies of EU Member States. Cooperation with these 
diverse partners is essential to make a difference and deliver quality results on the ground. 

21 ‘Equality for all and equality in all its senses’ is a key policy priority of the European Commission. To turn this objective 
into reality, since March 2020, the Commission has put forward a series of specific equality initiatives and strategies related 
notably to gender equality, disability, and the fight against different forms of discrimination. Those include notably the EU 
Gender Action Plan III in external relations; the EU Gender Equality Strategy 2020-2025; the EU Disability Rights Strategy; 
the EU LGBTIQ equality strategy 2020-2025; the EU anti-racism Action Plan 2020-2025; the EU Roma strategic framework 
for 
(https://ec.europa.eu/commission/commissioners/2019-
2024/dalli/announcements/union-equality-first-year-actions-and-achievements_en). See also EU action plan on human rights 
and  democracy  2020-2024  (https://ec.europa.eu/transparency/regdoc/rep/10101/2020/EN/JOIN-2020-5-F1-EN-ANNEX-1-
PART-1.PDF) 

participation 

2020-2030. 

inclusion 

equality, 

and 

22 United Nations, Global Humanitarian Overview 2021. 
23 See the UN Secretary-General’s policy brief ‘The impact of COVID-19 on women’: https://www.unwomen.org/en/digital-
library/publications/2020/04/policy-brief-the-impact-of-covid-19-on-women;  See  also  the  European  Institute  of  Gender 
Equality’s website on the gendered impacts of COVID-19: https://eige.europa.eu/topics/health/covid-19-and-gender-equality 
24  The  Safe  Schools  Declaration  (2015)  is  an  inter-governmental  initiative  led  by  Norway  and  Argentina  that  seeks  to 
strengthen the protection of education from attack and ensure the continuity of safe education during armed conflicts.  
25 Joint Communication on strengthening the EU’s contribution to rules-based multilateralism 
https://eeas.europa.eu/sites/default/files/en_strategy_on_strengthening_the_eus_contribution_to_rules-
based_multilateralism.pdf 

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3. Addressing the growing needs, reducing the funding gap  

3.1  Delivering  better:  Boosting  effectiveness  and  efficiency,  leveraging  innovation  and 
capacities  

Already in 2016, at the World Humanitarian Summit, the main donors and humanitarian aid 
organisations  recognised  the  structural  challenge  posed  by  growing  needs  and  a  finite 
resource  base.  They  agreed  on  a  ‘Grand  Bargain’  to  adapt  donors’  and  aid  organisations’ 
working  practices  with  a  view  to  maximising  efficiency  and  impact26.  The  central  ideas 
behind the Grand Bargain are more valid and more urgent than ever before: flexibility on the 
donor side to enable humanitarian partners to deliver a timely and adapted response, while 
harmonising  the  often  onerous  reporting  requirements  of  different  donors.  In  return,  aid 
organisations  renewed 
to  coordinated  needs  assessments, 
accountability  to  beneficiaries  and  taxpayers,  transparency  and  visibility  of  donors’ 
assistance, while making sure that the highest possible proportion of funds reaches people in 
need  of  assistance.  In  parallel,  it  is  essential  that  funding  can  be  mobilised  quickly  in 
response  to  unforeseen  emergencies  (as  demonstrated  by  COVID-19)  and  more  frequent 
natural sudden-onset disasters, such as those caused by climate change. The EU will aim to 
further  modernise  its  funding  mechanisms  to  offer  greater  operational  flexibility  to  its 
humanitarian  partners  while  enhancing  the  added  value  and  visibility  of  the  EU’s 
assistance. 

their  commitment 

While  the  majority  of  the  EU’s  humanitarian  assistance  is  allocated  on  an  annual  basis,  the 
European  Commission  has  piloted  multi-year  and  multi-country  ‘programmatic  partnerships’, 
including with the International Committee of the Red Cross27. These partnerships seek to provide 
greater  flexibility  to  humanitarian  partners  and  to  reduce  the  administrative  burden  for  both 
humanitarian  partners  and  the  Commission,  while  maximising  the  impact  of  EU  funding  and 
enhancing EU visibility. This pilot approach will be expanded to UN entities, agencies and other 
international organisations. 

More generally, the EU will further promote the development and uptake of innovative 
solutions  that  deliver  more  efficient,  cost-effective,  environmentally-friendly  and  climate-
proofed aid28. 

The use of cash transfers is now widely recognised as the most efficient and effective way of 
getting  assistance  to  people  affected  by  conflicts  or  disasters.  The  EU  has  a  long-standing 
commitment  to  using  cash  assistance  in  humanitarian  settings,  whenever  possible  and 
appropriate29.  It  has  also  worked  with  key  partners  to  ensure  that  the  highest  possible 
proportion of the funding provided for a cash programme reaches final beneficiaries.  

Digital means are key for the secure delivery of cash transfers. When available, they can also 
play an important  role in rolling out  distance learning  for education  in  emergencies, in  line 

26 See High-Level Panel on Humanitarian Financing:  Too important to  fail - addressing  the humanitarian financing gap, 
and https://agendaforhumanity.org/initiatives/3861 
27 The others involve ACTED-FR, Save The Children-DK, Concern-IRL and International Rescue Committee-DE.   
28  For  example,  through  the  European  Innovation  Council  prize  for  Affordable  High-Tech  for  Humanitarian  Aid  that 
supported projects providing, among others, smart solutions to communities and refugees for affordable energy, health and 
medical care. In detail: https://ec.europa.eu/research/eic/index.cfm?pg=prizes_aid 
29 Council Conclusions on cash transfers: http://data.consilium.europa.eu/doc/document/ST-10184-2015-INIT/en/pdf. 

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with the digital education action plan30, and in enabling early warning systems for disasters, 
displacement monitoring and remote needs assessments. The EU will further extend the use 
of  secure  and  efficient  digital  tools  in  its  humanitarian  actions,  in  particular  to  shock-
responsive  social  safety  net  programmes,  such  as  the  Emergency  Social  Safety  Net31  in 
Turkey  (the  biggest  humanitarian  programme  in  the  EU’s  history)  and  to  enable  the 
connectivity of aid recipients, in full respect of data protection requirements32.  

Support for local responders 

Local communities and organisations are usually the first responders to a crisis, playing a key 
role  in  delivering  fast,  quality  and  cost-efficient  assistance  to  people  in  need.  During  the 
COVID-19  outbreak,  local  actors  were  often  the  first  to  respond,  filling  a  vacuum  left  by 
departing  international  actors.  The  pandemic  has  also  underscored  the  importance  of  local 
knowledge  and  contextual  understanding  to  ensure  that  aid  is  more  readily  accepted  and  to 
speed up the capacity to intervene.  

The Grand Bargain included a strong commitment from donors and international aid agencies 
to channel more resources directly to local responders. However, the flow of funding to 
local actors and national non-governmental organisations has been hampered by the need for 
many donors to reconcile this commitment with regulatory, transparency and accountability 
requirements, especially in conflict situations where financial tracking might be challenging.  

The  Commission  will  strive  to  step  up  EU  support  for  localisation,  taking  into  account 
country and context specificities, as well as by leveraging different instruments in line with 
the humanitarian-development-peace nexus, along four axes: 

a)  investing in strengthening local capacities, building on its experience with initiatives 
such as the Local Initiative Fund in Turkey (LIFT), which is providing technical and 
financial  support  to  local  responders  so  that  aid  reaches  refugees  and  host 
communities;  

b)  favouring environmentally-friendly and local  procurement of humanitarian supplies;  

c)  supporting 

localised  financing  models,  such  as  multilateral  pooled  funding 

mechanisms with a strong focus on local responders;  

d)  encouraging  consortia  based  on  equal  partnerships,  shared  responsibilities  and 

funding between international and local responders.  

In  line  with  its  Grand  Bargain  commitments,  the  EU  is  contributing  to  UN  country-based  pooled 
funds33  in  South  Sudan  and  Ukraine  on  a  pilot  basis.  These  funds  enable  international  donors  to 
indirectly  support  local  and  national  non-governmental  organisations,  including  by  promoting  their 
participation in country-level humanitarian coordination mechanisms. 

30 https://ec.europa.eu/education/sites/default/files/document-library-docs/deap-communication-sept2020_en.pdf 
31 https://ec.europa.eu/echo/essn_en 
32 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32016R0679.  
33 https://www.unocha.org/our-work/humanitarian-financing/country-based-pooled-funds-cbpf 

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Objective: Promote flexible and efficient humanitarian action and funding mechanisms. 

Key actions: 

  Extend multiannual and flexible funding arrangements with humanitarian partners – 
liaising with development instruments whenever a nexus approach can be foreseen  – 
and simplify/harmonise reporting requirements in line with the Grand Bargain, while 
ensuring  that  needs  assessments  are  coordinated  between  agencies  and  that  the 
accountability, efficiency and visibility of EU support are strengthened. 
Increase EU support to local responders, including by expanded use of country-based 
pooled funds and other funding mechanisms that prioritise local actors. 

 

  Develop guidance on the promotion of equal partnerships with local responders. 
  Encourage  further  use  of  digital  tools  by  humanitarian  partners,  including  through 

joint work to build an enabling environment. 

  Develop  specific  guidance  on  expanding  the  use  of  digital  cash  and  ensure  aid 
recipients’  access  to  digital  solutions  in  the  context  of  the  revision  of  the  EU’s 
thematic policy on cash transfers. 

  Support, scale up and promote investments in proven, cost-effective, technology-based 
solutions  for  humanitarian  aid,  also  building  on  the  example  of  the  2020  European 
Innovation Council awards34. 

3.2 Filling the gaps: a European Humanitarian Response Capacity  

While  the  EU’s  humanitarian  aid  will  continue  to  be  delivered  by  the  EU’s  humanitarian 
partners,  there  may  be  situations  in  which  there  is  a  clear  added-value  for  the  EU  to 
intervene  directly,  for  instance  to  fill  in  a  temporary  gap  when  the  habitual  delivery 
mechanisms  or  available  capacities  from  humanitarian  organisations  or  national  authorities 
may  be  ineffective  or  lacking35.  In  such  cases,  a  European  Humanitarian  Response 
Capacity,  in  line  with  the  EU  Humanitarian  Aid  Regulation  and  financed  from  the  EU’s 
humanitarian  budget,  would  enable  the  EU  to  support  the  Member  States  and  the  EU’s 
humanitarian partners in the rapid delivery of assistance.  

This  capacity  would  draw  on  the  experience  gained  during  the  COVID-19  pandemic, 
including the use of repatriation flights to transport humanitarian cargo and the establishment 
of the EU Humanitarian Air Bridge36, in a Team Europe approach, to support the delivery of 
essential humanitarian aid.  

Between May and October 2020, the EU successfully completed  67 EU Humanitarian Air Bridge 
operations to 20 countries in four continents. This initiative, financed from the EU’s humanitarian aid 
budget,  deployed  1150  tonnes  of  essential  medical  and  humanitarian  cargo  and  1700  medical  and 
humanitarian staff, as well as other passengers.  

This capacity will function in complementarity with the Union Civil Protection Mechanism 
and will rely on the operational readiness of the EU’s Emergency Response Coordination 

34 https://ec.europa.eu/research/eic/index.cfm?pg=prizes_aid 
35  The  humanitarian  response  was  significantly  affected  by  transport  and  supply  chain  disruptions,  along  with  travel 
restrictions and lockdowns imposed across the world in the early stages of the COVID-19 pandemic.  
36 https://ec.europa.eu/echo/what/humanitarian-aid/humanitarian-air-bridge_en 

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Centre37. It will seek to further enable humanitarian action by the EU partners and Member 
States  and  will  be  implemented  in  close  coordination  with  the latter.  Where  necessary,  this 
capacity will aim to facilitate logistics including transport, enabling the pooling of resources 
and facilitating their deployment and initial operations in the field. It could, for instance, offer 
logistical  assessments,  support  to  initial  deployment,  support  for  procurement,  stockpiling, 
transporting and/or distributing relief items, including COVID-19 vaccines and their delivery 
in  fragile  countries38.  It  could  also  further  enhance  the  EU’s  medical  response  capacity  for 
future health emergencies, building on the existing EU Medical Corps, in cooperation, where 
relevant  with the future EU Health Task Force39 to be established under coordination of the 
European  Centre  for  Disease  Prevention  and  Control  (ECDC)  to  assist  local  response  to 
outbreaks of communicable diseases in synergy with the Union Civil Protection Mechanism, 
and  to  strengthen  preparedness  in  Member  States  and  in  third  countries.  In  addition,  these 
efforts  will also  be  complementary to  other EU  initiatives that can contribute to  supporting 
the  EU’s  humanitarian  action,  such  as  the  contribution  of  volunteers  through  the  European 
Solidarity Corps, which provides a single entry point for solidarity activities throughout the 
Union and beyond40. 

37 https://ec.europa.eu/echo/what/civil-protection/emergency-response-coordination-centre-ercc_en 
38 https://ec.europa.eu/info/sites/info/files/communication-united-front-beat-covid-19_en.pdf 
39 https://ec.europa.eu/info/sites/info/files/proposal-mandate-european-centre-disease-prevention-control_en.pdf 
40 https://europa.eu/youth/solidarity_en 

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Objective: Ensure that EU humanitarian aid can be delivered swiftly and efficiently to those 
in need. 

Key action: 

  Develop a European Humanitarian  Response Capacity to  fill in  gaps, as necessary, 
enabling  the  EU  Member  States  and  humanitarian  partners  to  rapidly  deliver 
humanitarian  assistance,  in  coordination  and  complementarity  with  the  Union  Civil 
Protection Mechanism.  

3.3.  A  stronger  focus  on  climate  impacts  and  environmental  factors:  advocacy, 
preparedness and anticipatory action 

Disaster preparedness is already an integral part of the EU’s humanitarian response, with a 
dedicated budget and a key element of the EU’s long-term disaster risk reduction agenda. 
However,  the  growing  impacts  of  climate  change  and  environmental  degradation  are 
jeopardising  the  success  of  humanitarian  action  itself41.  Climate  change  not  only  amplifies 
natural  disasters,  but  is  also  a  threat  multiplier42  which  complicates  and  prolongs  conflict 
situations, thus increasing humanitarian needs. It is therefore important to ensure that climate 
and  environmental  considerations  (including  risk  awareness)  are  taken  into  account  in 
humanitarian  action  wherever  and  whenever  it  is  provided,  with  specific  focus  on 
supporting  climate  adaptation  and  environmental  resilience  as  part  of  humanitarian 
programming in the most disaster-prone countries and regions.      

In  particular,  anticipatory  approaches43  to  humanitarian  action  can  help  bolster  the 
resilience of communities, including forcibly displaced groups, in regions vulnerable 
to climate-related and other hazards.  The effectiveness of such approaches depends on 
having in place sufficiently reliable information through early warning systems44, including 
indicators or other criteria to trigger action. Building on more partnerships with climate and 
scientific communities, the EU will scale up the use of these approaches. The EU will also 
use  its  chairmanship  of  the  Platform  on  Disaster  Displacement  in  2022  to  promote  global 
efforts to protect people displaced by disasters and climate change. 

In July 2020, forecasting provided by the Global Flood Awareness System under the EU’s Copernicus 
Emergency Management Service (a tool available for the Union Civil Protection Mechanism) enabled 
humanitarian  partners  in  Bangladesh45  to  act  quickly  in  response  to  heavy  flooding,  providing  cash 
assistance to 3 300 families in areas hardest hit. 

41 In the first half of 2020, around 10 million people were displaced largely due to weather related  hazards and disasters, 
mainly in South and South-east Asia and the Horn of Africa - World Meteorological Organization, 2020.  
42  Council  conclusions  on  Climate  and  Energy  Diplomacy  -  https://www.consilium.europa.eu/media/48057/st05263-
en21.pdf,  Climate  Change  and  Defence  Roadmap  -  https://data.consilium.europa.eu/doc/document/ST-12741-2020-
INIT/en/pdf  
43 Anticipatory action involves pre-planning early actions based on which funding can be disbursed quickly before a natural 
or  human-induced  disaster  takes  place  or  any  other  trigger  for  action  is  reached.  It  is  also  relevant  for  other  types  of 
anticipated emergencies, not only those linked to climate change. 
44 https://www.undrr.org/terminology/early-warning-system   
45 Actions implemented by the International Federation of Red Cross and Red Crescent Societies, Bangladesh Red Crescent, 
World Food Programme. 

10 

 
 
 
 
 
 
 
                                                           
In  spite  of  the  growing  humanitarian  impact  of  climate  change,  far  too  little  global  climate 
finance  is  reaching  the  most  vulnerable  countries46.  There  is  an  urgent  need  for  additional 
international finance for climate change adaptation, both from public and private sources. To 
avoid  more  strain  on  the  humanitarian  system,  the  EU  will  continue  to  advocate  for 
directing significantly more climate funds towards enhancing resilience and adaptation 
where  needed  the  most.    This  can  only  be  effective  through  an  integrated  approach  to 
climate  and  environmental  resilience  that  brings  together  humanitarian,  development  and 
peacebuilding actors with a focus on prevention and preparedness, drawing on the expertise 
of the climate and environment policy and science communities47. 

While  humanitarian  aid  is  not  subject  to  the  30%  climate  mainstreaming  target  under  the 
EU’s  2021-2027  multiannual  financial  framework,  it  nevertheless  contributes  to  climate 
action.  As  a  contribution  to  overall  efforts  to  track  EU  climate-related  expenditure,  the 
Commission will voluntarily apply such tracking to the EU’s humanitarian aid. 

Humanitarian donors and actors should lead by example. The EU will therefore also support 
humanitarian  partners’  efforts  to  reduce  their  environmental  footprint.  At  the  same 
time,  the  Commission  will  continue  the  process  of  ‘greening’  its  humanitarian  field 
network (ECHOField) and its headquarters48 in support of the European Green Deal49. 

Objective:  Further  mainstream  climate  change  impacts  and  environmental  factors  into 
humanitarian aid policy and practice and strengthen coordination with development, security 
and climate/environment actors to build resilience of vulnerable communities. 

Key actions: 

  Significantly increase the share of climate funds dedicated to enhancing resilience 

46 None of the 20 countries most vulnerable to climate change and climate-related disasters featured among the top 20 per 
capita recipients of climate change adaptation funding, according to the IFRC World Disasters Report 2020. 
47 For example, in the context of its cooperation with the World Meteorological Organization. 
48 Part of the Commission’s climate-neutral commitments. 
49 https://ec.europa.eu/info/strategy/priorities-2019-2024/european-green-deal_en 

11 

 
 
 
 
 
                                                           
and  adaptation  in  the  most  disaster-prone  countries  and  regions,  in  line  with  the 
new  EU  climate  change  adaptation  strategy,  and  as  part  of  the  humanitarian -
development-peace nexus approach.  

  Bolster climate and environmental resilience of vulnerable populations, through the 
humanitarian-development-peace  nexus  approach  and  ensure  dissemination  and 
implementation  of  new  guidance  on  disaster  preparedness  among  the  EU’s 
humanitarian partners, in close coordination with development and climate actors.  
  Further  develop  and  apply  risk-informed  approaches,  including  risk  financing  and 

scale up anticipatory action in different humanitarian contexts and regions.  

  Prepare  guidelines  and  training  for  the  EU’s  humanitarian  partners  on  greening 
humanitarian aid, with a view to reducing the climate and environmental footprint of 
humanitarian aid.  

  Track climate-related expenditure under the EU Humanitarian Aid Regulation.   

3.4 Delivering  together:  expanding  the  resource  base,  addressing  the  root  causes  of 

crises and ultimately reducing needs 

Addressing root causes and advancing the humanitarian-development-peace nexus 

The  aim  of  humanitarian  assistance  is  to  provide  emergency  relief  to  people  affected  by 
crises. Humanitarian aid on its own does not – and cannot – tackle the complex underlying 
drivers  of  conflicts  and  other  crises,  whether  socio-economic,  related  to  governance  or 
environmental issues. All these factors should continue to be tackled in a holistic manner - by 
addressing governance challenges, by respecting the fundamental rights of populations, 
by taking into consideration inequalities, by providing access  to basic services, justice, 
economic opportunities and to security as well as by tackling climate and environmental 
challenges.  International support in  any  crisis  situation will only have  a lasting impact  if it 
goes  hand  in  hand  with  a  strong  commitment  by  the  national  and  local  authorities  to  put 
people  at  the  centre  of  this  effort,  by  tackling  exclusion,  protecting  rights  and  ensuring 
accountability. This needs to be at the heart of the EU’s approach to conflicts and crises.  

As  part  of  this  effort,  the  EU  will  step  up  its  work  to  link  humanitarian  relief  with 
development and peacebuilding. Humanitarian aid is not designed as a long-term solution 
to  the  needs  of  people  impacted  by  crises.  Through  the  humanitarian-development-peace 
nexus, the EU will deploy all the instruments needed not only to address short-term needs but 
also to provide long-term solutions and, in conflicts, contribute to building lasting peace. This 
involves  joint  analysis  and  operational  response  frameworks  as  well  as  a  conflict-
sensitive approach so that external assistance does not inadvertently reinforce conflict. 

The nexus approach is now a reality in EU external assistance in many fragile and conflict-
prone  countries.  This  includes  both  the  six  EU  nexus  pilot  countries  designated  in  2017 
(Chad,  Iraq,  Myanmar,  Nigeria,  Sudan,  and  Uganda)  and  other  contexts  (e.g.  joint 
humanitarian-development-peace frameworks in response to the Syria crisis in Lebanon and 
Jordan). Examples include:  

  supporting social safety nets designed in close coordination between humanitarian and 

development actors;  

12 

 
 
 
 
  coordinated support  for disaster preparedness and resilience across development and 
humanitarian  funding  (especially  in  regions  severely  impacted  by  land  degradation, 
water scarcity and climate change, such as the Sahel);  
increasing attention to the protection of civilians;  

 
  pushing for structural reforms to address the underlying causes of violence;  
  promoting long-term solutions in the context of forced displacement, in line with the 
EU’s  2016  Communication  ‘Lives  in  Dignity’50  and  the  Global  Compact  on 
refugees51.  

The  continuing  presence  of  conflicts  and  the  socio-economic  impact  of  COVID-19,  only 
heighten  the  need  to  expand  these  efforts  –  mainly  through  even  stronger  cooperation 
between  the  EU,  its  Member  States,  their  diplomatic  network  and  finance  institutions  
(including national development banks and implementing agencies, as well as the European 
Investment Bank and the European Bank for Reconstruction and Development) building on 
the Team Europe approach52. A particular effort will be made on food security, health and 
education,  given  the  dramatic  impact  of  the  pandemic  in  these  areas.  Drawing  on  positive 
lessons  from  the  2014-2020  programming  period,  the  EU  will  continue  strengthening 
synergies  and  complementarities  among  the  different  actors  and  EU  services  while 
respecting humanitarian principles.  

Objective: Ensure that humanitarian, development, peacebuilding and other policies all work 
together to better link urgent relief and longer-term solutions, aiming at reducing needs and 
tackling the root causes of conflicts and crises. 

Key actions: 

  Undertake  systematic  EU  joint  analyses  of  the  risks,  needs,  vulnerabilities  and 
structural drivers of crisis as well as, when appropriate, joined-up programming and 
planning of EU’s policies, in line with the humanitarian-development-peace nexus.  
  Strengthen  coordination  mechanisms  at  field  level  across  the  EU’s  humanitarian, 
development  and  peacebuilding  actions  to  ensure  joined-up  and  coherent  outcomes, 
with the support of EU Delegations and ECHO field offices. Work closely with the EU 
Member States in this framework in a Team Europe approach. 
Implement  effective  linkages  between  the  different  humanitarian,  development  and 
peace actions and use existing tools, such as policy dialogue, to strengthen national 
and  local  capacities  –  including  the  capacity  of  non-state  authorities  –  to  provide 
basic services and support resilience building. 

 

  Expand support for cash-based, shock-responsive social safety nets. 
  Use the EU’s political and diplomatic engagement and all the instruments available 
to  prevent  crises,  resolve  conflicts  and  build  peace,  while  stepping  up  advocacy  in 
support  of  humanitarian  operations  so  as  to  facilitate  access  and  respect  for 
humanitarian principles, protection of civilians and international humanitarian law. 
  Promote effective humanitarian civil-military coordination in all relevant contexts, as 

50 ‘Lives in Dignity’ https://ec.europa.eu/echo/files/policies/refugees-
idp/Communication_Forced_Displacement_Development_2016.pdf 
51 https://www.unhcr.org/the-global-compact-on-refugees.html 
52 https://ec.europa.eu/info/sites/info/files/joint_communication_global_eu_covid-19_response_en.pdf 

13 

 
 
 
 
                                                           
a  framework  to  protect  the  humanitarian  space,  avoid  duplication,  minimise 
inconsistencies and maximise potential synergies with security and defence actors. 
  Build  synergies  with  EU  peace  mediation  and  conflict  prevention  efforts,  in  full 
respect  of  humanitarian  principles,  with  a  view  to  increasing  efforts  to  alleviate 
suffering.  
Integrate  education  into  the  priority  areas  for  the  humanitarian-development-peace 
nexus  to  help  bridge the global gap on education, alongside sectors such as  health, 
food security, disaster preparedness and climate resilience.  

 

Expanding the resource base – both inside and outside Europe  

The  dramatic  increase  in  recent  years  in  the  scope  and  severity  of  humanitarian  crises  is  a 
challenge to humanity as a whole. COVID-19 has underlined the imperative that ‘no one be 
left  behind’.  The  key  recommendations  made  by  the  High-Level  Panel  on  Humanitarian 
Financing convened by the UN Secretary-General in 2015 are even more acutely relevant in 
202153:  there  is  an  urgent  need  for  more  resources  to  address  substantially  expanded 
humanitarian needs.  

Despite  this,  the  resource  base  for  humanitarian  aid  remains  disturbingly  narrow.  In 
2020,  the  top  three  donors  (the  United  States,  Germany  and  the  European  Commission) 
provided 62% of reported humanitarian funding globally. Within the EU, just four Member 
States  and  the  European  Commission  account  for  approximately  90%  of  its  humanitarian 
financing54.  While  a  number  of  countries  have  stepped  up  their  humanitarian  funding  in 
recent years, including certain EU Member States, there is substantial scope to expand the list 
of  donors  and  enhance  the  contributions  of  existing  donors  to  respond  to  the  shared  global 
effort that is urgently needed.  

Against this background, the EU should increase its advocacy for a substantially enhanced 
humanitarian  financing  effort  and  a  better  sharing  of  responsibility  among  donors, 
including  EU  Member  States.  The  EU  -  working  with  its  Member  States,  as  well  as  with 
other committed humanitarian donors such as the United States - should leverage its bilateral, 
regional and multilateral engagement with both traditional and emerging donors (particularly 
those whose weight in the global economy has expanded substantially in recent years, such as 
China and the Gulf states) to encourage higher levels of funding and more systematic support 
to  the  global  humanitarian  system.  This  engagement  should  be  based  on,  and  recall,  the 
existing  0.7%  of  gross  national  income  target55  for  official  development  assistance  and 
should  encourage  stepped  up  humanitarian  funding  commitments  commensurate  with  the 
steep increase in recent  years in humanitarian needs and requirements. These efforts should 
go  hand  in  hand  with  rallying  support  for  respect  for  the  humanitarian  principles,  good 
humanitarian donorship and international humanitarian law. 

The EU and the US have a strong partnership in humanitarian aid, based on dialogue and cooperation  
on  specific  crises  and thematic  issues.  Building  on  this  strong  relationship, the  EU  and  the  US  can 

53 https://reliefweb.int/report/world/high-level-panel-humanitarian-financing-report-secretary-general-too-important-fail 
54 https://fts.unocha.org/global-funding/overview/2020 
55 https://ec.europa.eu/international-partnerships/system/files/european-consensus-on-development-final-20170626_en.pdf 

14 

 
 
 
 
 
 
 
 
                                                           
also  jointly  work  towards  a  better  sharing  of  responsibility  among  donors  in  supporting  the  global 
humanitarian system, in line with the new transatlantic agenda for global change56.  

The EU should also explore ways on how to better promote and involve the private sector in 
delivering services for people affected by humanitarian crises, when appropriate. There have 
been a number of innovative initiatives in recent years by humanitarian actors to pioneer tools 
such  as  humanitarian  impact  bonds.  Significant  progress  has  been  made  in  the  use  of 
insurance and re-insurance for disaster risks. However, there is scope for the EU to do more 
to leverage additional funding through greater engagement with the private sector in support 
to humanitarian response.  

Building  on  the  extensive  scoping  work  to  which  it  has  contributed  in  the  multilateral 
context57, the Commission will work towards introducing innovative methods of financing in 
its  humanitarian  toolbox  and  will  actively  promote  the  involvement  of the  private  sector  in 
humanitarian financing. 

Objective: Significantly increase the resource base for humanitarian action. 

Key actions: 

  Recalling the EU’s commitment to provide 0.7% of gross national income as official 
development assistance, work with Member States towards stepped-up humanitarian 
funding  commitments  commensurate  with  the  steep  increase  in  recent  years  in 
humanitarian needs and requirements.  

  Step up EU engagement with traditional and emerging donor countries to recall the 
shared  responsibility  to  support  humanitarian  response  and  integrate  it  more 
systematically  into  the  EU’s  political  dialogue  with  relevant  non-EU  countries. 
Strengthen  or  forge  alliances  at  the  global  level  with  like-minded  countries  to 
promote the global humanitarian agenda. 

  Launch  a  pilot  blending  initiative  from  the  EU’s  humanitarian  budget  to  leverage 

additional funding from the private sector in a humanitarian context in 2021.  

4. Supporting a better enabling environment for humanitarian aid  

4.1 Championing respect for International humanitarian law  

International  humanitarian  law  (IHL)  is  a  set  of  internationally  agreed  and  universally 
recognised rules to limit the effects of armed conflict and to protect civilians and others not 
taking  part  in  hostilities.  Respect  for  IHL  is  an  important  objective  in  itself;  it  is  also  a 
precondition  for  effective  humanitarian  aid  and  can  avoid  the  need  for  such  aid  in  the  first 
place.  Today,  violations  of  these  rules  are  a  recurrent  phenomenon.  Civilians,  including 
humanitarian or health care workers, are too often deliberately targeted by belligerents.   

56 https://ec.europa.eu/info/sites/info/files/joint-communication-eu-us-agenda_en.pdf 
57  For  instance,  in the  context  of  its  co-chairmanship  of  the  Good Humanitarian  Donorship  initiative  (2018-2021)  or  as  a 
member of the  Humanitarian and Resilience Investing Initiative https://www.weforum.org/projects/humanitarian-investing-
initiative?emailType=Newsletter) 

15 

 
 
 
 
 
 
 
 
 
                                                           
The EU has established guidelines on the promotion of compliance with IHL58 and provides 
support  for  the  training  of  military,  security  forces  and  diplomatic  personnel.  This  will 
continue under the new EU’s external instruments (for 2021-2027). The EU should continue 
to  put  the  promotion  and  application  of  IHL  consistently  at  the  heart  of  its  external 
action. In this context, the EU will continue to strongly support the role of the International 
Committee of the Red Cross in its mandate for the effective application of IHL. 

Serious  IHL  violations  should  be  consistently  denounced  as  part  of  a  coordinated  EU 
approach.  Ensuring  respect  for  IHL  as  part  of  the  EU’s  external  instruments  should  be 
strengthened, including through due diligence. The EU should also leverage its political and 
economic  weight  to  promote  IHL  compliance  by  partner  countries,  for  instance  through  its 
political  and  human  rights  dialogues,  as  well  as  in  trade  and  aid  relations  with  partner 
countries, where relevant. 

The increasing use of  sanctions – notably non-EU countries’ unilateral  sanctions, some of 
these  extra-territorial  in  scope  –  is  also  complicating  the  delivery  of  humanitarian  aid  and 
impeding  principled  humanitarian  action.  As  banks  and  other  financial  institutions  seek  to 
reduce their exposure by reducing or terminating their activities in jurisdictions that are under 
sanctions,  humanitarian  transactions  become  more  difficult  –  if  not  impossible.  While  EU 
restrictive measures are targeted and are not meant to impede the supply of humanitarian aid, 
they  entail  a  number  of  obligations,  whose  violation  can  lead  to  legal  action,  including 
criminal penalties at national level.  

The  EU  has  undertaken  outreach  activities  to  facilitate  the  provision  of  humanitarian 
assistance in environments that are under sanctions, including the Commission’s guidance in 
the context of the COVID-19 pandemic59. The EU should continue and further step up its 
support to its humanitarian partners with regard to their rights and responsibilities in 
the different EU sanctions regimes60. At the same time, the EU should pursue the consistent 
inclusion of humanitarian exceptions in EU sanctions regimes61. As per the ‘Call for Action 
to strengthen respect for international humanitarian law and principled humanitarian action’, 
which  the  EU  recently  joined62,  humanitarian  and  health  care  workers  engaged  in  activities 
conducted in accordance with IHL and the humanitarian principles should not be the target of 
criminal prosecution. The EU should also consider including IHL violations as a criterion 
for listing individuals or entities in relevant EU sanctions regimes. 

58 https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=LEGISSUM:ah0004 
59  Commission  Guidance  Note  on  the  provision  of  humanitarian  aid  to  fight  the  COVID-19  pandemic  in  certain 
environments subject to EU restrictive measures:  
https://ec.europa.eu/info/sites/info/files/business_economy_euro/banking_and_finance/documents/201116-humanitarian-aid-
guidance-note_en.pdf 
60  For  instance,    the  Communication  “The  European  economic  and  financial  system:  fostering  openness,  strength  and 
resilience”  envisages  a  review  of  existing  regimes  to  inter  alia  assess  their  impact  on  the  provision  of  humanitarian  aid  
https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A52021DC0032&qid=1611728656387 
61 Out of 42 EU sanctions regimes currently in force, 7 include humanitarian exceptions of some kind.  
62  Launched  by  the  French  and  German  Foreign  Ministers  in  New  York  on  26  September  2019.  The  EU  endorsed  it  in 
December 2020. (https://onu.delegfrance.org/Strengthening-respect-for-international-humanitarian-law) 

16 

 
 
 
 
 
 
 
 
 
 
                                                           
Objective:  Put  compliance  with  international  humanitarian  law  (IHL)  at  the  heart  of  EU 
external  action  to  protect  civilian  populations,  support  principled  humanitarian  action  and 
protect humanitarian and health care workers.  

Key actions: 

  Establish an EU-level coordination mechanism on IHL to ensure a better monitoring 
of IHL violations in the world, facilitate the coordination of relevant EU actors and 
support stronger EU humanitarian diplomacy.  

  Further  strengthen  the  IHL  compliance  framework  including  as  part  of  the  EU’s 
external  instruments,  inter  alia  through  due  diligence  and  through  its  political, 
security  and  human  rights  dialogues  and  trade  agreements  with  partner  countries, 
where relevant. 

  Consider  including  serious  IHL  violations  as  grounds  for  listing  in  EU  sanctions 
regimes whenever appropriate while ensuring that  any potential negative impact  on 
humanitarian activities is avoided.  

  Continue ensuring that IHL is fully reflected in EU sanctions policy including through 
the  consistent  inclusion  of  humanitarian  exceptions  in  EU  sanctions  regimes.  Work 
towards  an  effective  framework  for  the  use  of  such  exceptions  by  humanitarian 
to 
funding.  Provide 
organisations  receiving  EU 
humanitarian  organisations  with  regard  to  their  rights  and  responsibilities  in  the 
different EU sanctions regimes.  

further  practical  support 

  Continue promoting dialogue between all parties involved in humanitarian assistance 
(donors,  regulators,  NGOs  and  banks)  in  order  to  facilitate  the  delivery  of 
humanitarian assistance to all those in need. 

4.2 Enhancing the EU’s engagement and leadership 

Working as ‘Team Europe’ 

The EU’s humanitarian aid enjoys strong public support63 as one of the most visible facets of 
the  EU  external  action.  Under  the  EU  Treaties,  both  Member  States  and  the  EU  have 
important  and  distinct  roles  to  play  in  humanitarian  aid.  There  is  scope  to  leverage  this 
collective impact by coordinating efforts and ensuring complementarity and by promoting a 
humanitarian-development-peace nexus approach.  

Specifically, common EU messages on key humanitarian crises can sustain ‘humanitarian 
diplomacy’ initiatives at bilateral, regional and international level. Consolidated EU pledges 
(alongside  national  ones  by  Member  States)  can  enhance  the  visibility  of  the  EU’s 
commitment at international pledging events. 

Member States and the Commission in a Team Europe approach can also benefit from even 
closer  sharing  and  pooling  of  analysis  in  crisis  situations.  The  Commission  will  thus 
continue to make the expertise of its humanitarian field network64, alongside that of the EU 
Delegations,  available  for  the  benefit  of  Member  States.  This  will  include  offering  more 

63  According  to  December  2020  Eurobarometer  insights,  91%  of  the  interviewed  EU  citizens  say  it  is  important  or  very 
important that the EU funds humanitarian aid activities  
https://ec.europa.eu/commfrontoffice/publicopinion/index.cfm/survey/getsurveydetail/instruments/special/surveyky/2265 
64  The  Commission’s  humanitarian  field  (ECHOField)  network  consists  of  49  offices  in  41  countries  with  around  450 
experts providing technical assistance and monitoring of EU humanitarian aid. 

17 

 
 
 
 
                                                           
systematically  the  option  of  implementing  part  of  their  funding  in  specific  crises  through 
direct contribution to EU budget instruments as external assigned revenue.  

Pooling  of  resources  can  also  help  maximise  the  impact  of  EU  and  Member  States’ 
interventions,  while  offering  Member  States  the  possibility  to  extend  the  reach  of  their 
humanitarian  assistance.  Such  efforts  will  of  course  be  complementary  to  –  and  should  not 
compete with – established pooled funding mechanisms.  

At  the  operational  level,  the  Commission  will  bring  its  own  expertise  and  resources  to  the 
table,  both  in  humanitarian  assistance  and  in  civil  protection,  including  its  network  of 
humanitarian field experts and the Union Civil Protection Knowledge Network65. In parallel, 
the EU will continue to develop policies and guidelines in relevant areas of humanitarian aid, 
building  on  the  impact  its  thematic  policies  have  had  in  areas  such  as  protection,  gender, 
disability,  food,  nutrition,  health  –  including  mental  health  and  psycho-social  support  – 
shelter,  water,  sanitation  and  hygiene,  education  in  emergencies,  environment  and  aid 
delivery methods (e.g. cash assistance). 

While contributing  actively to dialogue on humanitarian issues  at  the multilateral  level,  the 
Commission  will  organise  in  2021  a  European  Humanitarian  Forum  to  promote  a  more 
sustained discussion and dialogue, including on the humanitarian policy issues raised in 
this  Communication  in  a  Team  Europe  spirit.  This  will  involve  key  stakeholders  from 
Member  States,  the  EU  institutions  including  the  European  Parliament  and  operational 
humanitarian actors.  

The  Commission  will  moreover  continue  its  efforts  to  promote  the  visibility  of  the  EU’s 
humanitarian  aid.  The  Commission  will  update  the  guidance  and  monitoring  of  visibility 
obligations,  empowering its humanitarian partners to  invest more in  awareness  raising with 
regard to the EU’s humanitarian aid. The Commission’s communication actions will support 
the overall principles of transparency, accountability and dialogue with the citizens. 

Strengthening the EU’s humanitarian engagement at multilateral level  

In  a  challenging  geopolitical  environment,  the  EU  is  committed  to  supporting  the  central 
coordinating  role  of  the  UN  in  the  response  to  humanitarian  crises  and  in  establishing  and 
upholding international normative and legal frameworks. To support the UN effectively, it is 
critical that the EU and its Member States strive systematically to consolidate positions in 
international  and  multilateral  forums,  including  at  the  UN  hubs  in  New  York,  Geneva  and 
Rome. The EU will continue to play an active role in international dialogues on humanitarian 
issues, including in the UN General Assembly and the UN Economic and Social Council. The 
EU will further strengthen its engagement in the governing bodies of UN agencies, funds 
and programmes66.  

Joint  Communication 

65 https://ec.europa.eu/echo/what/civil-protection/knowledge-network_en 
66 
on 
https://eeas.europa.eu/sites/default/files/en_strategy_on_strengthening_the_eus_contribution_to_rules-
based_multilateralism.pdf 

strengthening 

contribution 

EU’s 

the 

to 

rules-based  multilateralism 

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Objective: Enhance the  EU’s engagement  and leadership on humanitarian aid  to  maximise 
its impact. 

Key actions: 

  Encourage common messages by the EU and its Member States on key humanitarian 
crises  and  encourage  consolidated  EU  and  Member  States  pledges  at  international 
humanitarian pledging events (alongside national ones) in a Team Europe approach. 
Strive to  consolidate the EU and  Member States’ positions  in  relevant  international 
and multilateral forums.  

  Develop the option of use of external assigned revenue for EU Member States to avail 

themselves of the EU’s humanitarian field presence and expertise. 

  Organise  a  European  Humanitarian  Forum  in  2021  to  promote  dialogue  on 

humanitarian policy issues. 

  Promote and engage in further dialogue with key stakeholders on taking forward the 

key proposed actions set out in this Communication.  

5.  Conclusions  

Humanitarian aid is a concrete expression of EU solidarity, a fundamental and much-needed 
value  during  these  challenging  times.  Against  the  backdrop  of  growing  humanitarian  needs 
and  limited  resources  and  in  line  with  its  founding  principles  and  values,  the  EU  must 
continue  leading  by  example  in  this  area.  The  ambitious  agenda  set  out  in  this 
Communication can only be achieved in close coordination with the EU Member States and 
the  EU’s  humanitarian  partners.  The  Commission  invites  the  European  Parliament  and  the 
Council to join in supporting and taking forward the proposed actions in this Communication. 

19 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Appendix:  overview of key actions 

Key actions for the EU 

Objective: Promote flexible and efficient humanitarian action and funding mechanisms. 

  Extend  multiannual  and  flexible  funding  arrangements  with  humanitarian  partners  – 
liaising with development instruments whenever a nexus approach can be foreseen – 
and simplify/harmonise reporting requirements in line with the Grand Bargain, while 
ensuring  that  needs  assessments  are  coordinated  between  agencies  and  that  the 
accountability, efficiency and visibility of EU support are strengthened. 
Increase EU support to local responders, including by expanded use of country-based 
pooled funds and other funding mechanisms that prioritise local actors. 

 

  Develop guidance on the promotion of equal partnerships with local responders. 
  Encourage  further  use  of  digital  tools  by  humanitarian  partners,  including  through 

joint work to build an enabling environment. 

  Develop  specific  guidance  on  expanding  the  use  of  digital  cash  and  ensure  aid 
recipients’  access  to  digital  solutions  in  the  context  of  the  revision  of  the  EU’s 
thematic policy on cash transfers. 

  Support,  scale  up  and  promote  investments  in  proven,  cost-effective,  technology-
based  solutions  for  humanitarian  aid,  also  building  on  the  example  of  the  2020 
European Innovation Council awards. 

Objective: Ensure that EU humanitarian aid can be delivered swiftly and efficiently to those 
in need. 

  Develop  a  European  Humanitarian  Response  Capacity  to  fill  in  gaps,  as  necessary, 
enabling  the  EU  Member  States  and  humanitarian  partners  to  rapidly  deliver 
humanitarian  assistance,  in  coordination  and  complementarity  with  the  Union  Civil 
Protection Mechanism. 

Objective:  Further  mainstream  climate  change  impacts  and  environmental  factors  into 
humanitarian aid policy and practice and strengthen coordination with development, security 
and climate/environment actors to build resilience of vulnerable communities. 

  Prepare  guidelines  and  training  for  the  EU’s  humanitarian  partners  on  greening 
humanitarian aid, with a view to reducing the climate and environmental footprint of 
humanitarian aid.  

  Track climate-related expenditure under the EU Humanitarian Aid Regulation 

Objective:  Ensure  that  humanitarian,  development,  peace  and  other  policies  all  work 
together to better link urgent relief and longer-term solutions, aiming at reducing needs and 
tackling the root causes of conflicts and crises. 

  Undertake  systematic  EU  joint  analyses  of  the  risks,  needs,  vulnerabilities  and 
structural drivers of crisis as well as, when appropriate, joined-up programming and 
planning of EU’s policies, in line with the humanitarian-development-peace nexus.  

20 

 
 
 
 
 
 
 

Implement  effective  linkages  between  the  different  humanitarian,  development  and 
peace  actions  and  use  existing  tools,  such  as  policy  dialogue,  to  strengthen  national 
and local capacities – including the capacity of non-state authorities – to provide basic 
services and support resilience building. 

  Expand support for cash-based, shock-responsive social safety nets. 
  Promote effective humanitarian civil-military coordination in all relevant contexts, as 
a  framework  to  protect  the  humanitarian  space,  avoid  duplication,  minimise 
inconsistencies and maximise potential synergies with security and defence actors. 
  Build  synergies  with  EU  peace  mediation  and  conflict  prevention  efforts,  in  full 
respect  of  humanitarian  principles,  with  a  view  to  increasing  efforts  to  alleviate 
suffering.  
Integrate  education  into  the  priority  areas  for  the  humanitarian-development-peace 
nexus  to  help  bridge  the  global  gap  on  education,  alongside  sectors  such  as  health, 
food security, disaster preparedness and climate resilience. 

 

Objective: Significantly increase the resource base for humanitarian action. 

  Launch  a  pilot  blending  initiative  from  the  EU’s  humanitarian  budget  to  leverage 

additional funding from the private sector in a humanitarian context in 2021. 

Objective:  Put  compliance  with  international  humanitarian  law  (IHL)  at  the  heart  of  EU 
external  action  to  protect  civilian  populations,  support  principled  humanitarian  action  and 
protect humanitarian and health care workers.  

  Establish an EU-level coordination mechanism on IHL to ensure a better monitoring 
of  IHL  violations  in  the  world,  facilitate the  coordination  of relevant  EU  actors and 
support stronger EU humanitarian diplomacy.  

  Further  strengthen  the  IHL  compliance  framework  including  as  part  of  the  EU’s 
external instruments, inter alia through due diligence and through its political, security 
and  human  rights  dialogues  and  trade  agreements  with  partner  countries,  where 
relevant. 

  Continue promoting dialogue between all parties involved in humanitarian assistance 
(donors,  regulators,  NGOs  and  banks)  in  order  to  facilitate  the  delivery  of 
humanitarian assistance to all those in need. 

Objective: Enhance the  EU’s  engagement  and leadership on humanitarian aid  to  maximise 
its impact. 

  Organise  a  European  Humanitarian  Forum  in  2021  to  promote  dialogue  on 

humanitarian policy issues. 

  Promote and engage in further dialogue with key stakeholders on taking forward the 

key proposed actions set out in this Communication. 

21 

 
 
 
 
 
 
 
 
 
 
 
Key actions for the EU and Member States 

Objective:  Further  mainstream  climate  change  impacts  and  environmental  factors  into 
humanitarian aid policy and practice and strengthen coordination with development, security 
and climate/environment actors to build resilience of vulnerable communities. 

  Significantly increase the share of climate funds dedicated to enhancing resilience 
and  adaptation  in  the  most  disaster-prone  countries  and  regions,  in  line  with  the 
new  EU  climate  change  adaptation  strategy,  and  as  part  of  the  humanitarian-
development-peace nexus approach.  

  Bolster climate and environmental resilience of  vulnerable populations, through the 
humanitarian-development-peace  nexus  approach  and  ensure  dissemination  and 
implementation  of  new  guidance  on  disaster  preparedness  among  the  EU’s 
humanitarian partners, in close coordination with development and climate actors.  
  Further  develop  and  apply  risk-informed  approaches,  including  risk  financing  and 

scale up anticipatory action in different humanitarian contexts and regions.  

Objective: Ensure that humanitarian, development, peacebuilding and other policies all work 
together to better link urgent relief and longer-term solutions, aiming at reducing needs and 
tackling the root causes of conflicts and crises.   

  Strengthen  coordination  mechanisms  at  field  level  across  the  EU’s  humanitarian, 
development  and  peacebuilding  actions  to  ensure  joined-up  and  coherent  outcomes, 
with  the support of  EU  Delegations  and ECHO  field  offices. Work closely with  the 
EU Member States in this framework in a Team Europe approach. 

  Use the EU’s political and diplomatic engagement and all the instruments available to 
prevent  crises,  resolve  conflicts  and  build  peace,  while  stepping  up  advocacy  in 
support  of  humanitarian  operations  so  as  to  facilitate  access  and  respect  for 
humanitarian principles, protection of civilians and international humanitarian law. 

Objective: Significantly increase the resource base for humanitarian action. 

  Recalling the EU’s commitment to provide 0.7% of gross national income as official 
development assistance, work with Member States towards stepped-up humanitarian 
funding  commitments  commensurate  with  the  steep  increase  in  recent  years  in 
humanitarian needs and requirements.  

  Step  up  EU  engagement  with  traditional  and  emerging  donor  countries  to  recall  the 
shared  responsibility  to  support  humanitarian  response  and  integrate  it  more 
systematically  into  the  EU’s  political  dialogue  with  relevant  non-EU  countries. 
Strengthen or forge alliances at the global level with like-minded countries to promote 
the global humanitarian agenda. 

22 

 
 
 
 
 
 
 
 
Objective:  Put  compliance  with  international  humanitarian  law  (IHL)  at  the  heart  of  EU 
external  action  to  protect  civilian  populations,  support  principled  humanitarian  action  and 
protect humanitarian and health care workers. 

  Consider  including  serious  IHL  violations  as  grounds  for  listing  in  EU  sanctions 
regimes  whenever  appropriate  while  ensuring  that  any  potential  negative  impact  on 
humanitarian activities is avoided.  

  Continue ensuring that IHL is fully reflected in EU sanctions policy including through 
the  consistent  inclusion  of  humanitarian  exceptions  in  EU  sanctions  regimes.  Work 
towards  an  effective  framework  for  the  use  of  such  exceptions  by  humanitarian 
organisations receiving EU funding. Provide further practical support to humanitarian 
organisations  with  regard  to  their  rights  and  responsibilities  in  the  different  EU 
sanctions regimes.  

Objective: Enhance the  EU’s  engagement  and leadership on humanitarian aid  to  maximise 
its impact. 

  Encourage common messages by the EU and its Member States on key humanitarian 
crises  and  encourage  consolidated  EU  and  Member  States  pledges  at  international 
humanitarian pledging events (alongside national ones) in  a Team Europe approach. 
Strive  to  consolidate  the  EU  and  Member  States’  positions  in  relevant  international 
and multilateral forums.  

  Develop the option of use of external assigned revenue for EU Member States to avail 

themselves of the EU’s humanitarian field presence and expertise. 

23