Utviklings- og menneskerettighetsminister Hilde Frafjord Johnson

Norges innlegg under FN/ECOSOCs humanitære segment

Economic and Social Council
Humanitarian Segment
Strengthening of the Coordination
of Emergency Humanitarian Assistance
of the United Nations Statement

by Ms. Hilde F. Johnson
Minister of International Development
and Human Rights
Norway

New York, 15 July 1998

Mr. President,

We live in an age of immediate and live coverage of immense human suffering. Now, we are faced with the humanitarian catastrophy of the people of Southern Sudan. 2,5 million people are in danger of dying from starvation within weeks. International humanitarian assistance is on its way, too little, but hopefully not - too late. We are in a decade plagued by humanitarian emergencies, with the escalation of ruthless internal conflicts and the collapse of state structures, disrupting and destroying the lives and livelihoods of masses of civilians. Our challenge is to respond effectively to these urgencies of our time.

Norway has always been strongly committed to its humanitarian responsibilities, and we are among the largest donors to international humanitarian efforts. Over the years we have called for improvements in the international humanitarian response capacity and advocated that humanitarian issues be addressed in a more comprehensive and coordinated manner. We are therefore pleased with the establishment of a humanitarian segment in ECOSOC. This is why I as Norwegian Minister of International Development and Human Rights am participating here today.

The context in which humanitarian action is undertaken have changed dramatically. Traditional approaches have proved to be inadequate, and in far too many cases we have seen vast human suffering recurring. And why? Among the major contributing factors are the magnitude of new internal conflicts, lack of political will by the parties concerned to reach a peaceful solution and insufficient crisis management capacity of the international community. An improved and innovative coordinated international approach should provide a better link between political and humanitarian players and relief and development.

Tens of millions of people around the world are dependent on humanitarian emergency assistance. This is reflected in the comprehensive report of the Secretary General to this first Humanitarian Affairs Segment of ECOSOC. In addition to the many complex man-made emergencies, we are witnessing large-scale natural disasters striking whole regions, such as the El Niño phenomenon. Environmental emergencies are also increasing world wide. The outlook is particularly grim for those affected when humanitarian disasters are aggravated by natural catastrophes. The need for protection and assistance is therefore enormous.

Mr. President,

The problems on the humanitarian agenda cannot be addressed in isolation. Humanitarian action alone can never provide solutions to the underlying social and political causes of these crises. Humanitarian action cannot be a substitute for political inaction. Therefore, prevention of conflicts and potential social and ethnic tension should be addressed. Effective international action must be based on sound political and humanitarian principles. Thus, we need to develop integrated approaches towards crisis management, linking humanitarian considerations, respect for human rights and political, security and development policies in a coherent framework.

There is a great need for coordinated efforts at all levels in situations where large numbers of people are driven from their homes, separated from their families, and deprived of the basic essentials of existence. However, coordination is not a goal in itself. It is a major instrument to ensure the efficient delivery of humanitarian assistance. Flexible approaches to developing operational coordinating mechanisms is required. Coordination measures may follow different patterns, related to different countries and situations. Joint planning is needed between the different actors at all stages of complex emergencies. I am encouraged by the report of the Secretary General in this respect. The ongoing reform process in the UN, which emphasizes more efficient coordination of development activities at country level, is highly relevant for humanitarian efforts. A common UN approach at country level, i.e through common resident coordinators, will also better enable us to bridge the critical gap between the relief phase and long-term development.

We need common assessments of needs and analyses of problems, shared goals and common programming of operations. In some countries this could be done through comprehensive "strategic frameworks". In other situations a more strategic form of Consolidated Appeals (CAPs) should be used. Choice of coordinating mechanisms should be field-specific and based on a clear division of labour between agencies and more long term strategic planning. All actors in the field, including bilateral donors and NGOs should adjust their plans and operate accordingly.

The overriding goal must be no less than to secure and sustain people’s livelihood, based on respect for human dignity and the human rights of every individual. Assistance and development strategies should be designed to meet this goal so that local capacity can be strengthened, local vulnerability reduced and recovery from crisis can proceed. The UN should therefore include a stronger component of local capacity building in the Consolidated Appeals. It is particularly important that the strengthening of human rights is integrated into the planning of reconstruction efforts in post-conflict situations and into “strategic frameworks” for countries in crises. This is also related to the rights of women. In this context, I am deeply concerned about the discrimination against women in Afghanistan.

Mr. President,

Impartial delivery of humanitarian assistance and relief to persons in need is a fundamental humanitarian principle. The humanitarian imperative to alleviate suffering and save lives is axiomatic and must be upheld by all parties. Norway is deeply concerned by the blatant disregard for humanitarian principles such as the persistent denial of access to people in need and the deliberate violence and attacks on civilian populations. The abduction of children, the recruitment of child soldiers and the abuse of children in armed conflicts must be condemned.

Firm measures must be taken against parties who deliberately attack civilian staff members of the UN and the personnel of humanitarian organizations. In this respect I would like to announce my government’s intention to contribute USD 100 000 to the recently established Trust Fund for the security of UN personnel in order to support training and enhanced security management.

Multifarious efforts are needed to deal with the atrocities committed by regimes and the abuses committed by non-state actors whose ways of operating are contrary to international humanitarian principles. This often implies violations of international humanitarian law. In this regard we urge all member states to ensure that the current negotiations on the establishment of an independent, strong and truly credible International Criminal Court are successfully concluded this week.

Also the UN must pursue its efforts to control the proliferation of small arms in conflict zones and an integrated approach to anti-personnel landmines. The first intergovernmental conference on small arms is presently being held in Oslo where participants from a number of countries from all regions are attending. As for anti-personell landmines, the UN has an important role to play in support of the objectives of the Ottawa treaty and in ridding the world of the landmine scourge in the course of years rather than decades. Our humanitarian goal must also encompass human security. Norway firmly supports the UN in this endeavour.

Mr. President,

Humanitarian assistance has the potential to facilitate post-conflict reconstruction and hence consolidate peace. We must ensure that the relief phase is followed by long-term development. The UN has a key role to play in assisting countries emerging from crises and needs to be better equipped to play this role. The donor community, recipient countries, the UN and national and international agencies should be involved in the process of drawing up efficient coordinating mechanisms linking humanitarian assistance with development efforts. Development programming has to be taken into account when relief programmes are drafted. Both medium-term and more long-term objectives should be set.

There is no linear relationship between the relief phase and long-term development. I have seen in the Great Lakes region, particularly in Rwanda, but also in Angola, how the potential for reconstruction and rehabilitation co-exist with the need for emergency relief. We therefore need a broad approach to address the humanitarian crises and the challenge of development. Thus, we must take into consideration both the origins of the conflict and its possible solution in strengthening local communities, developing viable judicial systems, supporting good governance and building civil society. The leading role played by national authorities should be recognized in all stages from emergency to post-conflict situations. Efforts in education and the social sectors are among the most effective ways of bridging humanitarian assistance with rehabilitation and reconstruction. Such efforts may provide crucial building blocks for long-term development. The infrastructure that never can be destroyed by war, is the infrastructure developed in the minds of people. It is on the basis of such human capital that the future of a society may be built.

Mr. President,

The right to humanitarian aid must be reaffirmed, and the international community must send clear and unambiguous messages in this regard. The donor countries are responsible for providing the funding necessary. One important task is to ensure that the humanitarian agencies in the UN, including the newly established Office for Coordination of Humanitarian Assistance, are ensured sufficient and predictable funding. However, we see signs of growing donor fatigue. I am deeply concerned about the recent decline in donor response to the Consolidated Appeals, as well as the continuing decline in ODA from the North to the South. The DAC-statistics published recently show a dramatic decrease in ODA from 1996 to 1997, reaching its lowest level ever. This is unacceptable. From the Norwegian side, we are planning to increase our Overseas Development Assistance to 1 % of GDP.

Most humanitarian crises are man-made. All humanitarian activities and efforts are man-made. This is why all governments have a humanitarian mandate. This is why the UN also has a humanitarian mandate - and even more, a mandate to strengthen the coordination of humanitarian activities. In this way we can fulfil our humanitarian imperative, saving the lives of people. Fundamentally, it is all about human dignity, theirs - and ours.

Thank your, Mr. President.