UNHCR Pocket Guide For Emergency Responders

Pocket Guide
FOR REFUGEE EMERGENCY RESPONDERS
PROTECTING AND EMPOWERING
DELIVERING THE RESPONSE
LEADING AND
COORDINATING
STAFF
WELL-BEING
SECURITY
MEDIA
1
About This Guide
This concise guide is designed as a quick resource for field use. It
is not intended to give in-depth advice or guidance on using the
indicators and information found herein. Entries are based upon
resources available from the UNHCR Emergency Handbook (Dec
2017 version) and training materials developed by the UNHCR
Global Learning Centre’s Emergency Management Training Unit.
Users are encouraged to search the UNHCR on-line Emergency

Handbook using key words from the entries found here for more
ample information.
https://emergency.unhcr.org/
This Pocket Guide was developed by the Emergency Management Training Unit
with the UNHCR Centre for Emergency Preparedness (Bangkok) and Emergency
Services and was produced by InterWorks, LLC with Strange Fortune Design.
Please direct any questions or comments to hqemtu@unhcr.org
COVER PHOTOGRAPH: © UNHCR / A . MCCONNELL
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© UNHCR / S. RICH
PROTECTING AND
EMPOWERING
Protecting and Empowering
UNHCR’s Mandate
“UNHCR’s mandate covers refugees, that is, all
persons outside their country of origin for rea-
sons of feared persecution, conflict, generalized
violence, or other circumstances that have seri-
ously disturbed public order and who, as a result,
require international protection.” (From: Note on UNHCR’s Mandate)
The 1951 Convention

The 1951 Convention and Protocol Relating to the Status of
Refugees define a refugee as someone who “owing to well-
founded fear of being persecuted for reasons of:
■ race,
■ religion,
■ nationality,
■ membership of a particular social group or
■ political opinion
is outside the country of his nationality and is unable or, owing
to such fear, is unwilling to avail himself of the protection of that
country”.
UNHCR also has the competence to provide international protection

to refugees who come within the extended refugee definition under
UNHCR’s mandate because they are outside their country of origin or
habitual residence and unable or unwilling to return there owing to
serious and indiscriminate threats to life, physical integrity or freedom
resulting from generalized violence or events seriously disturbing
public order.
4
Definition of Internally Displaced Persons

(IDPs)
The United Nations Guiding Principles on Internal Displacement
defines Internally Displaced Persons (IDPs) as:
“persons or groups of persons who have been forced or obliged
to flee or to leave their homes or places of habitual residence, in
particular as a result of or in order to avoid the effects of armed
conflict, situations of generalized violence, violations of human
rights or natural or human-made disasters, and who have not
crossed an internationally recognized state border.”
Definition of Statelessness
The international legal definition of a stateless person is:
“a person who is not considered as a national by any State under
the operation of its law”.
In simple terms, this means that a stateless person does not have
a nationality of any country. Some people are born stateless, but
others become stateless.
Definition of Protection
All activities aimed at obtaining full respect for the rights of all
individuals in accordance with international law – international
humanitarian, human rights and refugee law – taking into account
their age, gender, social ethnic, national, religious or other back-
ground. (See: IASC, Statement on the Centrality of Protection,
17 December 2013, http://www.refworld.org/pdfid/52d7915e4.pdf)
5
Definition of Refoulement
The principle of non-refoulement obliges States not to expel or
return (refouler) in any manner whatsoever a person to territories
where his/her life or freedom would be threatened, i.e. where there
is a risk of persecution or any other form of serious harm. The
principle of non-refoulement applies to both refugees as well as
asylum-seekers.
Extended Refugee Definitions

■ In Africa, the 1969 OAU Convention governing specific aspects
of refugee problems in Africa extends the refugee definition to:
“every person who, owing to external aggression,
occupation, foreign domination or events
seriously disturbing public order in either
part or the whole of his country of origin or
nationality, is compelled to leave his place
of habitual residence in order to seek refuge
in another place outside his country of origin
or nationality”.
■ In Latin America, the 1984 Cartagena Declaration extends the

refugee definition to:
“persons who have fled their country because
their lives, safety or freedom have been
threatened by generalised violence, foreign
aggression, internal conflicts, massive viola-
tion of human rights or other circumstances
which have seriously disturbed public order”.
6
Safety, Dignity and Rights

Remember protection is about helping people stay safe and retain
dignity in emergencies. Safety and dignity are upheld and protected
by upholding rights:
SAFETY — the absence of threats or incidents of violence, coercion

and deprivation.
DIGNITY — the ability to make choices and feel respected and

valued in emergency.
RIGHTS — the foundation of protection found in humanitarian refu-

gee and human rights law. If rights are upheld protection is natural
outcome.
WHY IS PROTECTION IMPORTANT?

■ Because we know that people’s safety, dignity and rights are
threatened in emergencies.
■ Because we know that we can prepare for, and respond to, those
threats.
■ Because national actors have obligations to protect populations
at risk.
Durable solutions
Voluntary repatriation may be one solution for refugees who have
made the decision to return home. Together with the country of
origin and international community, UNHCR strives to facilitate their
choice through ‘go-and-see’ visits, education, legal aid, and family
reunification.
7
For those who cannot return, either because of continued conflict,

wars or persecution, resettlement in another country is one alterna-
tive. However, less than one per cent of refugee cases is submitted
for resettlement.
Another alternative for those who are unable to return home is inte-
gration within the host community. This is often a complex process
which places considerable demands on both the individual and the
receiving society. However, it also has benefits, allowing refugees
to contribute socially and economically.
Exclusion Clauses
Certain categories of persons are excluded from refugee status,
even if they meet this definition. These include persons who have
committed certain serious crimes or heinous acts, as stipulated in
the 1951 Convention.
Exclusion from refugee status under the 1951 Convention also

applies to persons who already have the same rights as nation-
als in the country where they have taken residence and persons
already receiving protection and assistance from another organ of
the United Nations (eg. from the United Nations Relief and Works
Agency, UNRWA). Once the protection or assistance from UNRWA
has ceased, Palestinian refugees are entitled to the benefits of the
1951 Convention and, as refugees already recognized by the inter-
national community, no separate or additional individual assessment
is required to qualify for international protection.ww
8
Key Protection Actions

Key Points on Refugee
Protection
■ Seeking asylum is a human right.
■ Being a refugee entitles a person to a number of rights, including
the right not to be sent back to the country of origin (principle
of non-refoulement).
■ Mass refugee influxes generally do not allow for time and
resource intensive individual status determination. Group deter-
mination on the basis of a prima facie approach is often more
suitable. This approach allows for the recognition by a State or
UNHCR of refugee status on the basis of readily apparent and
objective circumstances in the country of origin. Other case pro-
cessing approaches such as accelerated and simplified refugee
status determination can also be explored.
■ International protection must be provided to all refugees and
asylum-seekers, i.e. those who have been determined to be
refugees and those who await determination of their refugee
status.
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Refugee Response Protection Checklist

Protection should be at the core of the response, starting with
planning, advocating and facilitating an open asylum space. The
following points should be considered and addressed in the overall
response strategy:
☑ Access to territory and admission to safety and border

monitoring
☑ Non-refoulement

☑ Refugee status determination

☑ Registration and documentation

☑ Identifying and assisting persons with specific needs

☑ Freedom of movement and detention issues

☑ Age, Gender and Diversity sensitive approach in all assistance

sectors
☑ Child Protection

☑ Civilian character of asylum

☑ Monitoring, mitigation and response to Sexual and Gender

Based Violence
☑ Prevention of Sexual Exploitation and Abuse

☑ Community-Based Protection

☑ Accountability to Affected Populations

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Access to Territory and Border

Monitoring
Ensure people are given access to safe territory where they can
seek and enjoy asylum and international protection, by:
■ allowing them to enter the territory in order to seek and enjoy
protection (people should not be turned away at the border), and
■ preventing their forcible return or removal in any manner what-
soever to their country of origin or any other country where they
are at risk of persecution or other forms of serious harm.
Build confidence with refugees, host communities and civil society

and other partners (including UN agencies); they can alert you to
refugee movements as well as (possible) instances of refoulement.
Engage with State agents working at the border and continually
highlight and train them on the principle of non-refoulement.
Establish and know Standard Operating Procedures (SOPs) on

how to prevent and respond to instances of refoulement or potential
refoulement so you are prepared should cases arise.
Refoulement is best prevented through presence - either directly

or through partners at border entry points.
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Refugee Status Determination

Refugee status determination is the process by which asylum-seek-
ers are assessed to determine whether they meet the eligibility
criteria under the 1951 Convention or 1967 Protocol, the broader
definition of ‘refugee’, regional refugee instruments, or national
asylum legislation.
In an emergency, UNHCR will usually conduct individual refugee

status determination only if it is needed to ensure the protection
of individuals or groups or to implement a durable solution, or to
maintain or expand the protection space for other individuals or
groups by burden sharing with the host country.
© UNHCR / A . ZAVALLIS
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Registration in
Emergencies
Registration must be conducted in the first
three months of a population influx. As a tar-
get to aim for, emergency registration should
begin within seven days of an initial influx.
Registration in emergencies helps to ensure:

■ Persons of concern receive initial basic protection against arbi-
trary arrest, forcible recruitment, detention and refoulement
■ Persons with specific needs are identified and referred to appro-
priate protection services
■ Persons of concern have access to refugee status determination
and asylum procedures
■ Protection and assistance interventions are planned and
coordinated
■ Persons who are of concern to UNHCR and/or to the
Government of the territory of asylum are issued documentation
Registration is one of UNHCR’s primary activities at the onset of an

emergency and includes the identification and referral of persons
with specific needs who require targeted interventions.
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Prioritization of Individuals for

Emergency Registration
Persons who must be prioritized for emergency registration include:
■ Unaccompanied and separated children
■ Child-headed households
■ Older persons, particularly if they are unaccompanied
■ Persons with disabilities and their families
■ Persons with specific protection concerns and their families
■ Women and girls at risk, including single women in certain
circumstances
■ Persons with specific medical needs
■ Survivors of violence and/or torture
Minimum Data to be Collected in

Registration
HOUSEHOLD EMERGENCY REGISTRATION
The minimum data that must be collected is:
■ Name of both household representatives (normally one male and
one female)
■ Total household size
■ Sex and age breakdown
■ Specific needs in the family or household
■ Token number (or another unique identifier issued to the group)
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INDIVIDUAL EMERGENCY REGISTRATION

The minimum data that must be collected is:
A. Of the principal applicant or head of household of the group
(usually a household or family):
■ Place of origin
■ Arrival date
■ Registration date
■ Household identifier number (token or ration card number or
registration form number, etc.)
■ Location in the country of asylum
■ Individual national identity document number (if available)
■ Address and phone number (if available)
B. Of all group members, including the principal applicant or head

of household:
■ Individual name
■ Sex
■ Date of birth
■ Relationship to principal applicant or head of household
■ Specific protection needs
■ Photo (strongly recommended)
■ Biometric (recommended)
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Identifying Persons with Special Needs

The following are groups generally considered to have specific
needs:
■ Girls and boys at risk, including unaccompanied and separated
children
■ Persons with serious health conditions
■ Persons with special legal or physical protection needs
■ Single women
■ Women-headed households
■ Older persons
■ Persons with disabilities
■ Persons at risk due to their actual or perceived sexual orientation
or gender identity
Be proactive in identifying persons with special needs. Persons with

specific needs cannot be assumed to be visible. They are often the
least likely to come forward to make their needs known.
It is essential to analyze the protection and assistance risks that

individuals and groups face, and to assess their needs by means
of a targeted protection assessment, a needs assessment, or both.
16
Freedom of Movement
and Detention
Refugees and displaced people may be
detained by authorities during large-scale
influxes or when States impose restrictions for
the purposes of national security during emergencies.
Detention by authorities should only be used when determined to be
necessary, reasonable in relation to circumstances and proportionate
to a legitimate purpose.
Key Issues
■ Detention must always be in accordance with and authorized
by law. It must not be arbitrary, and any decision to detain must
be based on an assessment of the individual’s particular circum-
stances. Conditions of detention must be humane and dignified.
Detention should be subject to independent monitoring and
inspection.
■ Access by UNHCR to persons of concern in detention must be
allowed.
■ UNHCR should closely monitor the effective enjoyment of the
rights to liberty and security of the person and freedom of move-
ment by all persons of concern and intervene with the relevant
authorities where appropriate. Alternatives to detention need to
be considered and promoted where appropriate.
■ In principle, children should never be detained. If children are
detained, prioritize their release into adequate alternative care.
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Age, Gender, and

Diversity
Conflict and displacement affect individuals
differently, depending on their age, gender, and
diversity. UNHCR seeks to ensure that all persons
of concern fully participate in and enjoy their rights on
an equal footing with others.
■ Age denotes the various stages in a person’s life cycle. It is
important to know where a person is in his or her life cycle,
because capacities and needs change over time. Age influences
a person’s capacity to exercise his or her rights.
■ Gender denotes the socially constructed roles of women and
men that are often central to the way we define ourselves
and are defined by others. Unlike sex, gender is not biologi-
cally determined. The principle of gender equality affirms that
women, men, girls and boys should enjoy rights, responsibilities
and opportunities on equal terms.
■ Diversity denotes the variety of values, attitudes, cultural per-
spectives, beliefs, ethnic backgrounds, nationalities, sexual
orientations, gender identities, abilities, health, social status,
skills and other specific personal characteristics that people pos-
sess. UNHCR undertakes to recognize, understand and value
these differences in each specific context and operation, to
ensure that all persons of concern are protected appropriately.
18
Child Protection
“In all actions concerning children, the best
interest of the child shall be a primary con-
sideration. This principle should guide the
design, monitoring, and adjustment of all
humanitarian programmes and interventions”.
(Global Protection Cluster)
Child protection means preventing and responding to violence,

abuse, neglect and exploitation and giving displaced children
access to protection services by establishing or supporting national
and community-level child protection systems.
Definitions
‘Unaccompanied’ and ‘separated’ children have distinct definitions:
■ ‘Separated children’ are separated from both parents, or from
their previous legal or customary primary caregiver, but not nec-
essarily from other relatives; they may be accompanied by other
adult family members.
■ ‘Unaccompanied children’ are separated from both parents and
other relatives and in consequence are not cared for by an adult
who, by law or by custom, is responsible for their care.
19
Civilian Character of Asylum

Asylum has an inherently peaceful, civilian and humanitarian char-
acter. Persons who pursue military activities in a country of asylum
cannot be asylum-seekers or refugees.
Definition of Combatant
For this purpose, a ‘combatant’ refers to a person in a host State
who is a member of a regular armed force or irregular armed group,
or who has been participating actively in military activities and
hostilities, has undertaken activities to recruit or train military per-
sonnel, or has been in a command or decision-making position in
a regular or irregular armed organization.
Child Soldiers
Children associated with armed forces should be regarded primarily
as victims, regardless of how they were recruited. They should benefit
from special protection and assistance measures, notably to demobi-
lize and rehabilitate them. They should not be detained, except as a
last resort and then only for the shortest possible time. They should
be held separately from adults in child-appropriate facilities.
Disarmament and Internment

Host States are primarily responsible for upholding the civilian and
humanitarian character of asylum. They should disarm all persons
carrying weapons, identify combatants, separate them from civilian
arrivals, and take other measures required to ensure security, which
may include internment. If individuals permanently and genuinely
renounce military activity, they may have their claims to international
protection assessed.
20
Sexual and Gender

Based Violence
This refers to any act perpetrated against a
person’s will and based on gender norms and
unequal power relationships. It includes physi-
cal, emotional or psychological and sexual violence,
and denial of resources or access to services. Violence includes
threats of violence and coercion.
How to Prevent Sexual and Gender Based

Violence (SGBV):
1 Raise awareness among persons of concern of the need to pre-
vent SGBV and promote gender equality and promote services
available to survivors. Include information on how survivors can
access justice through formal and informal justice mechanisms.
2 Identify or encourage the formation of community-based support

networks among persons of concern.
3 In partnership with host communities and the host Government,

establish joint arrangements to ensure the safety and security

of persons of concern.
4 Work with partner organizations to create safe spaces for

women and for children in, out-of-camp settings. Where these

already exist, make the community more aware of them.
21
5 Ensure that teachers, other school staff, and students are trained

in SGBV and that systems are in place in schools to identify and

refer survivors and children who are at risk of SGBV.
6 In camp settings, work with humanitarian workers and gov-

ernment to ensure camps are set up, structured and managed

to promote safety, by providing lighting, an adequate security
presence (including female security personnel), secure shelters
allocated according to need/vulnerability, and water, sanitation
and hygiene facilities that are safe and accessible.
7 In urban settings, work with shelter partners to reduce the

risks of SGBV created by overcrowded or insecure housing

arrangements.
8 Explore the provision of vocational, skills training and livelihood

programmes because these can contribute to SGBV prevention

by empowering women.
9 Engage with persons who have power (employers, teachers, land-

lords), and educate them about the risks and consequences of

SGBV.
10 Provide training to local authorities, law enforcement and judicial

officers, including informal justice mechanisms where relevant,

to ensure that they recognize, respect and protect the rights of
SGBV survivors
11 In discussions with local authorities, and law enforcement and

judicial officers, including representatives of informal justice

mechanisms, emphasize the importance of bringing perpetrators
to justice.
22
12 Train and inform humanitarian workers and contractors/suppli-

ers in a range of functions (education, protection, food security,

livelihoods, camp coordination and camp management (CCCM),
health, shelter, fuel and energy, WASH), to ensure they under-
stand the risks of SGBV and their responsibility to prevent
and, where appropriate, respond to it in their programming.
Disseminate UNHCR’s Code of Conduct and the Secretary-
General’s Bulletin on special measures for protection from
sexual exploitation and sexual abuse (ST/SGB/2003/13).
How to Respond to Sexual and Gender

Based Violence
1 Provide training to humanitarian workers to ensure they fully
understand the SGBV SOPs. Make sure they are familiar with
reporting and referral systems and core principles that under-
pin work with survivors: respect, safety, confidentiality and
non-discrimination
2 Engage with service providers to make sure that services they

provide to SGBV survivors are appropriate, of high quality, and
comply with basic standards for survivor care. When a survivor
reports a SGBV incident, always respect his or her wish to report
the incident formally or not, or access particular services. Every
survivor should be:
■ Informed of the assistance available, including medical ser-
vices, psychosocial support, legal assistance, and (where
necessary) material assistance and access to safe shelter.
23
■ Provided with health assistance as a priority if he or she has

experienced physical or mental harm. In cases of rape, all (eligi-
ble) survivors must have access to post-exposure prophylaxis
(PEP) against HIV, prophylaxis for sexually transmitted infections,
and (in the case of female survivors) emergency contraception.
Able, where admissible, to have forensic evidence collected by
the health sector/cluster, where appropriate.
■ Granted free legal aid if he or she wishes to pursue legal action.
If the survivor agrees, acts of sexual violence or female genital
mutilation should be reported to the police as soon as possible.
■ Relocated to a safe house, shelter or an alternative location
within the country, or considered for resettlement if their safety
is at risk and circumstances require it.
© UNHCR / G. GOODWIN
24
Protection from
Sexual Exploitation
and Abuse
Definition of Sexual
Exploitation
“Sexual exploitation is any actual or attempted abuse of a
position of vulnerability, differential power, or trust, for sexual pur-
poses, including, but not limited to, profiting monetarily, socially
or politically from the sexual exploitation of another.” (See: UN
Secretary-General’s Bulletin on protection from sexual exploitation
and abuse (PSEA) (ST/SGB/2003/13))
Key Points
Sexual exploitation and abuse represent a catastrophic failure of
protection. It brings harm to those whom the UN and its partners
(NGOs and International Organizations) are mandated to protect
and jeopardizes the reputation of these organizations. It also
violates universally recognized international legal norms and stan-
dards. Some key points include:
■ UNHCR’s compliance with the Secretary General’s Bulletin on

Special Measures for Protection from Sexual Exploitation and
Abuse requires UNHCR to have focal points in every operation
who can take complaints from persons of concern and report on
those complaints. Communities should understand their rights
and know established feedback channels. Colleagues should
also map out potential risks and prepare an action plan.
25
■ Experience has shown that sexual exploitation and abuse can

occur frequently in emergencies. Focal points must discuss the
design of complaints mechanisms with women, girls, boys, and
men of concern and with partners so that they know where to
go to report and where to go for help. Design of complaints
mechanisms should be realistic and practical, in ways that
facilitate persons of concern to come forward with complaints.
Coordination with partners and government is needed for follow
up protection assistance.
■ Focal points and emergency response teams must involve com-

munities and partners to raise awareness of sexual exploitation
and abuse.
■ Team leaders and partners must take time to properly screen

and verify that personnel being recruited locally are adequately
skilled in applying anti-exploitation and abuse strategies.
■ All emergency teams and partners must report any suspicions,

concerns, or potential cases directly to UNHCR’s Inspector
General’s Office: inspector@unhcr.org
26
Community-Based Protection
Community-based protection empowers communities to obtain
their rights safely and with dignity. Using this approach, crisis-af-
fected communities and the humanitarian actors who assist them
can identify a community’s most serious protection risks, explore
their causes and effects, and jointly decide how to prevent and
respond to them. It achieves better protection impact and improves
the lives of people of concern.
Community-based protection is a continuous process that engages

communities as analysts, evaluators and implementers in their own
protection and not just a matter of consulting communities, or their
participation in rapid assessment or information-gathering.
Tips for Building Community-Based

Protection
■ Include all relevant actors in Community-based protection activ-
ities: local institutions, State agencies, civil society organizations
and persons of concern, including persons with specific needs.
Coordinate with other national and international actors and
avoid over-assessment.
■ Every community that faces threats develops forms of individual
or collective self-protection. These may or may not be effective,
but it is important to identify and map them.
■ Building trust and engagement must be started immediately. This
will take time and patience: it requires regular and consistent
involvement and communication with the community.
■ Do not make any promises to the community that you will not
be able to keep.
27
Accountability to
Affected Populations
Accountability to affected populations can be
understood as an active commitment by human-
itarian actors and organizations to use power
responsibly by taking account of, giving account to
and being held to account by the people they seek to assist.
Key Components
■ Participation and Inclusion: continuously engage communities
in protection, assistance and solutions programming building on
their existing capacities.
■ Communication and Transparency: provide all persons of
concern with timely, accurate, and relevant information on their
rights and entitlements and the roles and responsibilities of
UNHCR and its partners.
■ Feedback and Response: ensure that all formal and informal
communications from persons of concern, both positive and
negative, inform protection, assistance and solutions program-
ming, and that corrective action is taken as appropriate.
■ Learning and Adaptation: document, analyse, and report on
feedback from persons of concern throughout the response,
to inform interventions, planning, course corrections, and
evaluation.
28
Communicating with Communities

It is important for emergency responders to understand different
groups and individuals’ information needs, their preferred channels
and trusted sources. It is equally important that communities’ voices
inform humanitarian decision making. Emergency responders
should demonstrate that they have listened and should proactively
explain the changes they’ve made and why certain actions cannot
be taken.
Emergency responders are encouraged to be open to adopting

new channels of communication. It is important to focus on the
purpose of establishing dialogue, the target population, and content
before determining the particular technologies to be used.
Key Points
■ Don’t just talk to communities – listen first.
■ Assess Information needs, preferred methods and technologies,
and trusted sources.
■ Adopt multiple communications options to promote inclusivity.
■ Ensure that information shared is accurate, timely and actionable.
■ Build upon expertise and guidance from non-traditional partners
– including telecommunications, local media etc.
29
Emergency Mass Communication

Options
OPTION STRENGTHS WEAKNESSES
Notice- Effective for simple and Limited geographic coverage.

boards complex messages Audience must be literate
Posters and Simple to produce and Low or no impact on illiterate

flyers effective audiences
Public
Simple; can reach large and May be perceived as intrusive
address
illiterate audiences (an unwanted noise)
system (PA)
Comment &
Communities can provide
complaint Users must be literate
anonymous feedback
boxes
Effective for feedback,

Requires access to a phone
Hotlines allows general pre-recorded
and capacity to refer calls
messages
Short messages only, hard

Provides mass reach if many
to check whether messages
SMS people have mobile phones,
have been understood and
cost effective
spread
Familiar; usually low cost; can Users need access to a radio

Radio
reach large audience and power source
Has wide reach; can explore Access is likely less wide than
Television
issues in depth radio
Requires internet/telecoms
Social
An increasingly useful tool structure, literacy, and com-
media
puter skills
30
© UNHCR / B. MALUM
delivering the response
DELIVERING THE
RESPONSE
31
The Comprehensive
Refugee Response
Framework
In 2016 the UN General Assembly adopted a
set of commitments to enhance the protection of
refugees and migrants known as the New York Declaration on
Refugees and Migrants. It calls upon UNHCR to develop and ini-
tiate a Comprehensive Refugee Response Framework (CRRF) in
close coordination with relevant States through a multi-stakeholder
approach. Civil society actors are explicitly recognized as partners
in the practical application of this initiative.
Objectives of the Comprehensive

Refugee Response Framework
The objectives of the Comprehensive Refugee Response
Framework are to:
■ ease pressures on countries that host large number of refugees,
■ enhance refugee self-reliance,
■ expand access to third-country solutions, and
■ support conditions in countries of origin for return in safety and
dignity.
The comprehensive framework is designed to ensure: rapid and

well-supported reception and admission measures; support for imme-
diate and ongoing needs (including protection, health and education);
assistance to national and local institutions and communities receiving
refugees; and expanded opportunities for durable solutions.
32
Applying the Comprehensive Refugee

Response Framework During Emergency
Preparedness
■ Include all stakeholders, including development actors;
■ Diversify partners – engage the private sector and explore new
partnerships (e.g. World Bank and regional institutions);
■ Map in-country provision of technical and infrastructural support
by national institutions, development actors, the private sector,
academia, think tanks, etc. including potential refugee hosting
areas;
■ Embed development and host communities’ needs in all aspects
of preparedness;
■ Map development related projects in areas which can potentially
host refugees
Applying the Comprehensive

Refugee Response Framework During
Emergencies
While addressing the immediate needs of refugees, and preserving
humanitarian principles, work on the following:
■ Support refugees and host communities, taking into account
sectoral and local plans and strategies; and working through
municipal service delivery avoiding as much as possible estab-
lishing parallel systems (education, health, water supply etc.);
■ Encourage development partners and donors (at capital, regional
and HQ levels), and invite them to support host populations and
to include refugees in their programming;
■ Undertake identity management/registration.
33
Cash Based
Interventions
Cash based interventions use local markets
and service providers to transfer resources
directly into the hands of affected populations in
the form of cash and vouchers. They can be used in
rural, urban, camp, and non-camp situations, for any type of pro-
gramme, and for any community in need.
The UN World Food Programme and UNHCR agreed in May 2017 to

collaborate to provide cash-based assistance for refugees. UNHCR
encourages the use of cash over that of vouchers to the extent
feasible. Vouchers should be used only if required by programme
objectives or the local context. UNHCR prefers to use multipur-
pose cash grants to meet a wide range of needs in line with its
multi-sectoral mandate.
These programmes provide a more dignified way to provide

assistance as they offer more flexibility and choice. They have the
potential to reduce negative coping strategies, increase positive
economic interactions with displaced and host community and
support local trade. They can also reduce time and increase cost-ef-
ficiency for agencies and participants (with experience) and can be
used at any stage of displacement.
34
Definition of Cash and Vouchers

■ Cash: Provision of money directly to persons of concern, such
as in an envelope (cash-in-hand), or through an ATM, mobile
phone, or a bank agent.
■ Vouchers: A paper or electronic coupon that can be exchanged
for goods and/or services. Vouchers are either denominated
as a cash value (e.g. USD 15) or as a set of pre-determined
commodities or services (e.g. 5kg of maize or milling of 5kg of
maize), and are redeemable with pre-selected vendors.
Requirements for Cash Based

Interventions
■ Functioning accessible markets
■ Reasonable supply of goods
■ Adequate security (free movement of goods & persons)
■ Reliable beneficiary identification system
■ Payment services
■ Political feasibility
35
Needs Assessment for Refugee

Emergencies (NARE)
The NARE Checklist is designed to assist operations with the guid-
ance and tools required to undertake an initial multi-sectoral needs
assessment when there has been a significant sudden, forced dis-
placement of populations across borders. It can also be used when
new groups of refugees move into an existing operational area, or
to strengthen refugee operations in which adequate needs assess-
ments have not been made.
Checklist for Designing and Conducting

an Emergency Needs Assessment
☑ Establish a basic description of the situation.

☑ Identify the purpose, and the kinds of decisions that require

needs assessment information.

☑ Identify inter-agency stakeholders.

☑ Calculate the time and resources that will be required (includ-

ing equipment, translators, data collectors, and data entry

personnel).
☑ Conduct a secondary data review, compile a “3W” analysis (who,

what, when), and identify information gaps by means of a situa-

tional analysis.
☑ Decide how communities will be sampled.

☑ Design and test data collection forms.

☑ Train the data collection team.

☑ Undertake primary data collection.

☑ Collate, clean and analyse the information produced.

☑ Disseminate data and information products.

☑ Begin monitoring.

36
Alternative to Camps
Model
The Comprehensive Refugee Response
Framework reinforces the vision set out in the
Alternatives to Camps policy and UNHCR’s commit-
ment to strengthening community-based protection and c l o s e r
collaboration with national services and systems.
STEP 1 Defining the Alternatives to

Camps Vision In-Country
The first of these steps is to define the vision of the alternative
refugee response that is acceptable and supported by the host
government. This first step establishes a mutual understanding of
the host government’s vision and the principal components of an
Alternatives to Camps model in country.
STEP 2 Applying the Alternatives to

Camps Vision In-Country to Population
Groups
A second step is to specify for which refugee population group/site/
region the Government and local host communities are prepared to
move towards this approach over the following 3-5 years.
The question requires a positive commitment by Government and

by key actors in host communities, indicating a base-level of polit-
ical will and social acceptance.
37
STEP 3 Outline the Alternatives to

Camps Scenario in Designated Locations
A third step is to outline what are likely alternative settlement sce-
narios for these population groups. These would typically be: a
camp/site that is to be transformed into a sustainable settlement;
or an administrative area governing several such camps/sites;
or a hosting area (rural or urban) to which population groups are
expected to relocate if camps/sites are to be closed.
STEP 4 Defining Change in Designated

Locations
A next step is to define what change looks like for these population
groups in their alternative settlement locations.
■ What capacities/strengths exist in the settlement area such as its
physical and environmental infrastructure and population char-
acteristics; what are opportunities relating to the broader context
/ national level, such as potentially supporting institutions and
entry-points/hooks provided by local/national development
plans;
■ What change is required to address gaps or threats, building on
existing capacities and opportunities;
■ What are feasible implementation periods to implement those
changes – and which can help sequence and prioritize the plan
(next steps)?
38
STEP 5 Prioritizing Across Alternative

Settlement Locations
Prioritise planning and implementation across alternative settlement
locations and/or population groups.
STEP 6 Planning for Implementation with

Partners
A more detailed multi-year multi-partner plan will be needed in the
prioritized locations and populations.
■ Identify existing and potential responsible or supporting entities
for the various dimensions and services as relevant;
■ Validate foreseeable changes, feasibility and time-frames
identified in Step 4, and advising as needed what further
multi-sectoral/sectoral assessments may be required;
■ Estimate programme costs, and entry-points/hooks within the
local/national development plans as relevant;
■ Consider what form UNHCR’s role could take amidst a range of
functions such as: facilitating strategic planning and fostering
partnerships (“influence”), delivering programmes (“invest”),
coordinating/leading data gathering and provision (“invest” and
“influence”), and advocacy.
39
Urban Settlements
Refugees and other displaced people often
settle in informal areas or marginalized neigh-
bourhoods which often lack adequate access,
services, sanitation, and space for shelters.
Displaced population may blend into the resident
urban poor which makes targeted assistance challenging, but even
more important to ensure resources reach the intended recipients.
The local population may also need support, for example in ensur-
ing that resources and communal service infrastructure are not
overburdened. Full consultation with formal and informal authorities
is necessary to avoid conflict with existing inhabitants and plans.
It is important that traditional or informal land tenure is recognized
and supported to ensure the best protection of the displaced.
Collective Centres
Pre-existing buildings or structures may be used as collective
centres - community centres, town halls, hotels, gymnasiums, ware-
houses, unfinished buildings, disused factories. These facilities are
seldom fit for immediate habitation and must be upgraded to meet
the shelter needs of residents. Collective centres should be used
only as short-term accommodation to gain time to provide more
suitable shelter.
CONSIDERATIONS
■ Families and communities may be able to be kept together main-
taining existing support mechanisms
40
■ If the building is connected to the water and sanitation system

it may only require upgrades to achieve adequate standards. If
buildings are in good condition, it is very cost effective and may
be easily winterized
■ Collective centres can get overcrowded. Psychosocial problems
can arise if displaced individuals remain in collective centres for
too long without privacy and independence
■ Increased security, fire and communicable disease risk will
increase due to the concentration of people
Host Neighbourhoods
Displaced persons may live with and amongst local households, on
land or in properties that locals own. Hosts may be relatives, distant
family members, friends or acquaintances, or people previously
unknown to those who have been displaced.
CONSIDERATIONS
■ Host arrangements can provide immediate shelter for persons
of concern
■ Access to spontaneous community support mechanisms can
encourage self-reliance, independence and a sense of belong-
ing. Host communities may have limited resources and many
may be living in poverty. In urban areas absorption capacity
may be limited and competition for resources can be fierce
■ Accommodation with host families in dense urban areas can be
over-crowded, with detrimental effects to health and welfare of
both host and displaced families
41
■ Housing may already be substandard. Host families may be in

need of improved shelter.
Short-Term Tenancy (Land, House,

Apartment, or Room)
Persons of concern may rent from the local population via formal or
informal agreements. As with host neighbourhoods, rental accom-
modation may be available immediately, and the displaced will have
greater independence and self-reliance. However, in a competitive
market, refugees, the internally displaced, and returnees may be
vulnerable to discrimination and exploitation by unscrupulous land-
lords; rental accommodation that is available and affordable is often
substandard; the relationship between landlord and tenant may be
exploitative.
CONSIDERATIONS
■ Access to livelihoods may be possible in urban areas.
■ Displaced persons have some degree of choice on where to
settle, and may settle within local communities that share cultural
ties with them.
■ Gathering data from and communicating with the displaced will
be difficult and costly.
■ The displaced may be less likely to report security or protection
concerns to authorities for fear of eviction or abuse.
■ Reaching formal agreements to occupy property may be more
difficult if the legal framework for ownership is inadequate, or if
42
the property is in informal settlements which may not have legal

recognition from the state and therefore no formal property titles.
Self-settled, Unplanned Camps

Spontaneous settlements or unplanned encampments occur when
groups of displaced people populate areas without assistance or
guidance from local government or the humanitarian community.
Such settlements are located on land that the displaced population
does not officially have the right to occupy.
CONSIDERATIONS
■ Spontaneous settlements in urban areas will likely occupy unde-
sirable land in high risk areas such as along ravines or hillside
slopes, or limited public areas such as public squares or parks.
■ Access to adequate supply of water supply, sanitation and other
infrastructure is unlikely.
■ An assessment must determine if the population can and should
be relocated to another settlement such as a planned camp or
if arrangements can be made in host neighborhoods.
■ Some spontaneous settlements, even in urban and peri-urban
areas can be formalized and upgraded if the site is suitable and
approval is granted by the authorities.
43
Rural Settlements
The displaced population may settle on land
outside of cities and towns. The population is
often dependent on agricultural and pastoral
practices and has fewer community infrastructure
systems than in urban settlements.
Host Villages
In host villages, displaced persons live with and amongst local
households, on land or in properties that local residents own. Hosts
may be relatives, distant family members, friends or acquaintances,
or people previously unknown to those who have been displaced.
Dispersed Self-Settlement Without Legal

Status
People may settle in scattered locations across large areas, on land
or buildings for which they have no approval to occupy. In this form
of settlement, the displaced population has little or no assistance or
guidance from local Government or the aid community.
Planned Camps
Planned camps are a form of settlement in which refugees or inter-
nally displaced persons reside and receive centralised protection,
humanitarian assistance, and other services from host governments
and humanitarian actors. Planned camps are designed and devel-
oped to contain the needed infrastructure to serve its residents, and
have formal recognition and approval from the authorities
44
CONSIDERATIONS
■ Attention should be given to laws and regulations governing the
use of environmental impact assessments prior to the design
and planning of the settlement and shelter programme.
■ No single camp layout or option is ideal. Settlement planning is
always context specific.
■ A sound settlement strategy may combine several settlement
options.
■ Assess available natural resources and the absorption capacity
of hosting areas.
■ Ensure that needs assessments evaluate the logistics infrastruc-
ture, storage capacity, the availability of construction materials,
and the feasibility of setting up supply chains into affected areas.
■ Environmental considerations must be integrated into phys-
ical planning and shelter programmes from the start of an
emergency. The location and layout of camps, provisions for
emergency shelter, and the use of local resources for construc-
tion and fuel, can have significant impacts on the environment.
45
Camps
Camps are a form of settlement in which
refugees or IDPs reside and can receive cen-
tralised protection, humanitarian assistance,
and other services from host governments and
other humanitarian actors. UNHCR discourages the
establishment of camps and whenever possible prefers alternative
settlement strategies, provided they adequately protect and assist
persons in need of safe shelter effectively.
Site Selection – Key Factors

The operational context will determine site selection criteria. The
factors below must be considered when selecting sites for refugee
settlement.
■ Topography, drainage, soil conditions
■ Water resources
■ Land Rights
■ Accessibility
■ Security
■ Environment and Vegetation
46
SPHERE Standards and Indicators for

Camp Design
Follow the SPHERE emergency standards, indicators and guidance.
The table below shows the quantifiable indicators and guidance
directly related to meeting the SPHERE standards for camp planning
– with some specific notes for application for emergency camp design.
DESCRIPTION EMERGENCY MINIMUM INDICATORS
• ≥3.5 m2/ person (in cold climates and urban areas

Covered shelter more than 3.5 m2 may be required (4.5 to 5.5 m2 is
space more appropriate)
• ≥2m ceiling height at highest point of shelter
• 45 m2 / person (Sphere), but note following addi-

tional explanation and guidance on this indicator
that is not found in Sphere:
• ≥45m2/person – Standard - includes roads, ser-
Camp settlement vices, all infrastructure and household gardening
size space. This should be allocated.
• ≥35 m2/person - Acceptable Range - as above but
does not include space for gardening.
• 34 m2 to 30 m2 – Unacceptable Range
• ≤29 m2/person – Critical Range
• 30 m firebreak every 300 m

Fire safety • 2m between structures – use 2 times the height
of the structure as a guide
Site slope • 1 to 5 % gradient, ideally 2 to 4%
• Appropriate drainage especially where rainy

Drainage
seasons or flash floods occur
47
Guidelines for Services to be Provided

in Camps
PLANNING FURTHER
SERVICE
QUANTITIES CONSIDERATION
WASH SERVICES
Separate latrine areas for men and
1 / 20 persons women
Communal latrine
emergency phase For long-term use one household
latrine per family
≤ 50m and ≥ 6m Close enough for convenience, far

Latrine distance
from shelter enough from odors and pests
Separate, well drained, shower

Shower 1 / 50 persons
areas for men and women
Water supply 20 l / person / day -
Water tap stand 1 / 80 persons 1 per community
≤ 200m from No dwelling further than a few

Water distance
household minutes’ walk from water poin
Rubbish bin
1 / 50 persons 1 per 10 families
(100 liter)
Refuse pit
1 / 500 persons 1 per 100 families
(2m x 5m x 2m)
48
PLANNING FURTHER
SERVICE
QUANTITIES CONSIDERATION
HEALTH, EDUCATION, AND SUPPORT SERVICES

1 per settlement - Include water
Health center 1 / 20,000 persons
and sanitation facilities
1 / 200,000
Referral hospital 1 per 10 settlements
persons
1 per sector - 3 classrooms, 50
School 1 / 5,000 persons
m2 each
Distribution center 1 / 5,000 persons 1 per sector
Market place 1 / 20,000 persons 1 per settlement
Feeding center 1 /20,000 persons 1 per settlement
OTHER SERVICES
15 to 20 m2 / 100
Storage area Refugee storage
persons
Priorities include latrine, wash
Lighting As appropriate
areas, public service areas
Includes arrivals area, medical
Registration area As appropriate
clearance, distribution, parking
Administration /
As appropriate -
office
Security post As appropriate -
Depending on
Security fencing -
circumstances
49
Water, Sanitation and Health (WASH)

Indicators in Emergencies
POST
INDICATOR EMERGENCY
EMERGENCY
Litres/person/day ≥15 l/p/d ≥20 l/p/d
Households collecting drinking

water from protected water ≥70% ≥95%
sources only
Tests with 0 faecal coliforms /

100ml of water (at non-chlorinated ≥95% ≥95%
water collection locations)
Tests showing free residual

chlorine ≥0.1 mg/l and NTU<5
≥95% ≥95%
(at chlorinated water collection
locations)
Number of persons per tap ≤250 ≤80-100 max
≤500 persons/
Number of users per hand pump hand pump and ≤200-300 users/
or well ≤400 persons/ hand pump or well
well
Households collecting ≥15 l/p/d ≥80% ≥80%
Distance from dwellings to taps /

≤500 meters ≤200 meters
water collection locations
Households with sufficient daily

water storage capacity (50 litres for ≥80% ≥80%
5 family members average)
50
Examples of Adequate Full Rations

ITEMS RATIONS
Example 1 Example 2 Example 3 Example 4 Example 5
Cereal 400 g 450 g 350 g 400 g 400 g
Pulses 60 g 60 g 100 g 60 g 50 g
Oil (vit. A
25 g 25 g 25 g 30 g 30 g
fortified)
Fish/meat - 10 g - 30 g -
Fortified
blended 50 g 40 g 50 g 40 g 45 g
foods
Sugar 15 g - 20 g - 25 g
Iodized
5g 5g 5g 5g 5g
salt
Energy
2,113 2,075 2,113 2,146 2,100
(kcal)
Protein 58 g 71 g 65 g 55 g 65 g
% kcal 11% 13% 12% 10% 12%
Fat 43 g 43 g 42 g 42 g 39 g
% kcal 18% 18% 18% 17% 17%
(Source: Food nutrition needs in emergencies, UNHCR, UNICEF, WFP,

WHO, 2003)
51
Characteristics of Common Foods

VITAMINS AND
FOOD TYPE COMMENTS
MINERALS
Contain vitamin B
and iron. These are
Cereal grains (rice, The main source of both
reduced by milling, i.e.
corn sorghum, oats, energy and protein in
the whiter the flour,
etc.) most diets.
the greater the loss of
vitamins.
B complex vitamins. Particularly useful when

Legumes / oilseeds
Most contain significant eaten with cereals as the
(beans, peas, soya,
levels of iron and proteins complement
groundnuts, etc.)
calcium. each other.
Whole tubers and Variable but generally Bulk and low protein
roots (yams, taro, low, except for pota- content makes them un-
cassava, sweet potato, toes which are rich in suitable as staple foods
potato, etc.) vitamin C. in emergencies.
Good source of
vitamins and minerals.
Variable quantities of
Vegetables and fruits B and C vitamins. Dark -
green leaves or yellow/
red pigmentation
indicates vitamin A.
More readily used by the

Good sources of B
body than proteins of
vitamins. Whole milk
Meat, milk and dairy vegetable origin. Small
and eggs also good
products, eggs, etc. quantities are useful to
source of vitamin A and
improve the quality and
calcium.
palatability of diet.
52
VITAMINS AND
FOOD TYPE COMMENTS
MINERALS
A concentrated source
Rich source of calcium
of protein for those who
Fish, dried and iron. Contains B
like it. Acceptability trials
vitamins.
essential before use.
Fats derived from milk

Useful way to increase
are sources of vitamin
energy intake without
A and D. Vegetable fats
Fats and oils increasing bulk of diet.
contain no vitamin A
Improves palatability and
and D, except for red
helps in food preparation.
palm-oil.
© UNHCR / S. SAMBUTUAN
53
Health
Mortality Surveillance
Threshold
The crude mortality rate (CMR) of the population
should be monitored in both emergencies and long-
term situations. The crude mortality rate should be reported in terms
of deaths per 10,000 people per day using the two formulas below for
the whole population and for those under five years of age.
CMR
Formula
Total number of deaths
during time period
x 10,000 persons = CMR
Population at risk x (deaths / 10,000 / day)
Number of days in time period
Target CMR < 1
UNDER-FIVE CMR
Formula
Total number of deaths in
children < 5 years
during time period
x 10,000 persons = Under-five CMR
Total number of children (deaths / 10,000 / day)
< 5 years x
Number of days in time period
Target Under-Five CMR < 2
54
Baseline Reference Mortality Data

by Region
CMR CMR USMR USMR
REGION (deaths/ EMERGENCY (deaths/ EMERGENCY
10,000/day) THRESHOLD 10,000/day) THRESHOLD
Sub-Saharan
0.41 0.8 1.07 2.1
Africa
Middle East and

0.16 0.3 0.27 0.5
North Africa
South Asia 0.22 0.4 0.46 0.9
East Asia and

0.19 0.4 0.15 0.3
Pacific
Latin America
0.16 0.3 0.15 0.3
and Caribbean
Central and
0.33 0.7 0.14 0.3
Eastern Europe
Industrialised
0.25 0.5 0.03 0.1
countries
Developing
0.22 0.4 0.44 0.9
countries
Least developed 0.33 0.7 0.82 1.7

countries
World 0.25 0.5 0.40 0.8
55
Contributing Factors to Common

Health Problems
DIARRHEAL DISEASES
Overcrowding
■
Contamination of water and food

■
Lack of hygiene
■
MEASLES
Overcrowding
■
Low vaccination coverage

■
NOTE: Immunization from 6 months up to 15 years (rather than the

more usual 5 years) is recommended because of the increased risks
from living conditions
ACUTE RESPIRATORY INFECTIONS

Poor housing
■
Lack of blankets and clothing

■
Smoke in living area

■
MALARIA
New environment with a strain to which the refugees are not immune
■
Stagnant water which becomes a breeding area for mosquitos

■
MENINGOCOCCAL MENINGITIS
Overcrowding in areas where the disease is endemic (often has local
■
seasonal patterns)
TUBERCULOSIS
Overcrowding & Malnutrition
■
High HIV prevalence

■
56
TYPHOID
Overcrowding
■
Poor personal hygiene & inadequate sanitation

■
Contaminated water supply

■
WORMS, ESPECIALLY HOOKWORMS

Overcrowding & Poor Sanitation
■
SCABIES
Overcrowding & Poor personal hygiene
■
XEROPHTALMIA, VITAMIN A DEFICIENCY

Inadequate diet following prolonged acute infections, measles
■
and diarrhea
ANEMIA
Malaria, hookworm, poor absorption or insufficient intake of iron
■
and folate
TETANUS
Injuries to unimmunized population
■
Poor obstetrical practice causes neo-natal tetanus

■
HEPATITIS
Lack of proper hygiene
■
Contamination of food and water

■
STD’S/HIV
Loss of social organization & lack of information
■
Poor transfusion practices

■
57
Key Indicators in Health Service Delivery

These are rough indicators only, and specific recommendations will
require adequate assessment of the health situation.
■ one basic health unit / 10,000 population (basic health units are
primary healthcare facilities where general health services are offered)
■ one health centre / 50,000 people
■ one district or rural hospital / 250,000 people
■ >10 inpatient and maternity beds / 10,000 people
HIV Prevention and Support Standard

■ 100% of patients who have been on treatment for HIV before an
emergency should be traced and treatment restarted.
■ Universal access to condoms (0.5 condoms per person per
month).
■ Where antenatal care services are already available, 100% of
HIV-positive pregnant women should receive antiretroviral
therapy, for their own health and to eliminate mother-to-child
transmission.
58
Education
Access to education is a basic human right
and is linked to better lives for children and
youth. Education in emergencies provides
immediate physical and psychosocial protec-
tion, as well as life-saving knowledge and skills
(for example, with respect to disease prevention, self-protection
and awareness of rights). Prioritize the inclusion of refugee and
displaced children in national education systems as soon as
possible.
Emergency Education Standard

■ All children have access to primary, secondary or context-ap-
propriate preparatory or accelerated education of good quality
during the first phase of an emergency
■ Refugee children and youth are able to participate in accred-
ited national education systems and programmes under similar
conditions to local children.
■ Learning environments are secure and safe, and promote the
protection and psychosocial well-being of learners, teachers
and other education personnel.
■ Teaching and learning materials are conflict sensitive, culturally,
socially and linguistically relevant, and appropriate to the partic-
ular context and needs of learners.
■ Teachers and other education personnel periodically receive
training that meets their needs and circumstances, including
59
training on protection-related issues. Their conditions of work

are harmonized, clearly defined and appropriately compensated.
■ Members of the community participate transparently and without
discrimination in processes to plan, design, implement, monitor
and evaluate educational provision.
Tips for Starting Education Programmes

in Emergencies
■ Provide child friendly spaces.
■ Minimise the use of educational facilities as temporary shelters.
■ The maximum distance between learners and their learning sites
should be defined according to local and national standards.
■ Sphere guidelines for school toilets call for one toilet for every
30 girls and one toilet for every 60 boys
■ Core competencies should be identified before the develop-
ment or adaptation of learning content and teacher training
materials.
■ Limit class size. A ratio of 1 teacher to 40 students has been
recommended in some cases. However, stakeholders are
encouraged to review and determine what is locally appropriate
and realistic (INEE Minimum Standards for Education)
60
Procurement and
Administration
In emergencies, international procurement
(excluding standard relief items) should be
considered only when products of a suitable
quality are not available in sufficient quantities on
the local market.
Local procurement is preferred (wherever goods and services are of

sufficient quality) because they offer numerous advantages (lower
price, shorter lead time, products familiar to local persons of con-
cern, lower environmental costs, etc.). Risks associated with local
procurement should also be assessed (lower quality goods, lower
production capacity, higher prices, etc.)
Financial Management Tips

■ In emergency operations, funds must be available and payment
mechanisms need to be operational immediately. Cash is held in
bank accounts, cash accounts or petty cash to meet immediate
operational requirements and make immediate payments. Plan
cash resources weekly, and prepare a cash forecast for one to
3 months ahead.
■ Local currency cash requirements are best managed by using
local bank accounts in the country.
■ In addition to bank accounts, offices normally operate petty cash
funds to make limited recurring or small emergency purchase of
61
under USD 100 (or the equivalent in other currencies). A petty

cash fund is used when it is not practical or possible to make
minor payments by bank transfer or cheque. It is used to pay for
small purchases or services, such as local transport expenses
(taxi fare), postage costs, stationary, minor office maintenance
expenses, and minor vehicle maintenance costs.
Fleet Management
Determine needs for vehicles at the start of the operation. Note that
delivery (including preparation, fitting, sailing time, custom clear-
ance and registration) can take time. To bridge the gap until new
vehicles arrive in the country, consider hiring vehicles temporarily
from local service providers to meet peak demand.
© UNHCR /C. TIJERINA
UNHCR Emergency Staffing and
62
Deployment
UNHCR uses roster mechanisms to enable emergency operations
to manage when their workforce resources are insufficient. Four
main rosters are available:
■ The permanent standby teams of the Division of Emergency,
Security and Supply (DESS) are mobilized to provide technical
advice and support and (in the case of an L2 or L3 emergency)
led by a Principal or Senior Emergency Coordinator.
■ The Senior Corporate Emergency Roster (SCER) is a pool of
some 20 UNHCR staff at the P5 level and above, who are on
standby for deployment to senior roles within L2 and L3 emer-
gencies or to be deployed as senior cluster coordinators within
the framework of the inter-agency rapid response mechanism
(IARRM) for IASC system-wide L3 emergencies.
■ Emergency Response Team (ERT) roster. The emergency
response team (ERT) is a pool of some 100 trained UNHCR per-
sonnel who are on standby for emergency deployment. The ERT
roster includes GS6 to P4 level personnel and covers almost all
profiles, except certain technical specialists.
■ To strengthen its response capacity, UNHCR can call on exter-
nal expertise to supplement its internal resources. Through its
agreements with emergency standby partners, DESS has devel-
oped an extensive external deployment capacity.
63
© UNHCR / C. DELFOSSE
LEADING AND
COORDINATING
leading and coordinating
UNHCR’s Refugee
Coordination Model
The Refugee Coordination Model is the basis
for leading and coordinating refugee opera-
tions. Together with the UNHCR-OCHA Joint
Note on Mixed Situations, the Refugee Coordination
Model provides the framework and the principles through which
refugee and mixed situations are to be approached.
In a refugee situation, the UNHCR Representative has the overall

responsibility to work with the government for the protection of
refugees and leads the overall refugee response.
Standard Elements of the Refugee

Coordination Model
■ Direct advocacy on all international protection matters with the
host Government by the UNHCR Representative.
■ Strategic planning for all phases of the response led by the
Representative with operational partners in the development
of a protection and solutions strategy, including development
actors.
■ An inclusive Refugee Consultation Forum at national level,
co-chaired by the Government (wherever possible) and the
Representative.
■ A UNHCR Refugee Coordinator to lead and coordinate a
multi-sectorial response, supported by a Multi-sector Operations
Team.
65
■ A UNHCR-led Refugee Protection Working Group responsible

for the coordination of protection services and for mainstreaming
protection.
■ Service-delivery sectors, led by Government line ministries and/
or (co)chaired by partners and/or UNHCR.
■ Arrangements on sector coordination and delivery with multiple
potential partners, to ensure a predictable response. Agencies
may wish to draw upon Global Cluster resources to support the
delivery of services.
Coordination Guidance for Mixed

Situations
■ The High Commissioner for Refugee’s accountability for persons
of concern remains unchanged; he must retain an oversight and
monitoring role, within the UN response, over the delivery of
services to refugees
■ The Refugee Coordination Model is applicable in all refugee
situations and throughout a refugee response
■ Where IDPs and refugees reside in the same locations, either
clusters or sectors capacities can be used based on consider-
ations of: context, location, size of refugee and IDP populations,
and capacity of UNHCR sectors / IDP clusters.
The decision on use of sector and clusters capacities for the

response is to be taken by the High Commissioner for Refugees
and the Emergency Relief Coordinator.
(For more information on mixed situations, see the UNHCR-OCHA

Joint Note (of 26 April 2014 and reconfirmed via another Joint Letter
in 2016).)
66
Coordination Of
Non-Refugee
Humanitarian Crises
For non-refugee humanitarian crises such
as natural disasters or situations of internal dis-
placement, overall accountability for coordination and delivery
of assistance rests with the Emergency Relief Coordinator (ERC)
who designates the Humanitarian Coordinator (HC). The HC leads
the Humanitarian Country Team (HCT) that includes the Heads of
Agencies. NGOs coordinate among themselves to ensure that they
are appropriately represented. Cluster coordinators report to the
head of the Cluster Lead Agency (CLA).
Cluster Definition
A cluster is defined as a sectoral group of humanitarian organi-
zations (UN and non-UN). Clusters are normally activated by the
ERC, with the endorsement of the Inter Agency Standing Committee
(IASC) Principals. Clusters are activated based on the advice of
the HCT members, when clear humanitarian needs exist and when
national authorities need coordination support. Humanitarian orga-
nizations under the Cluster Approach, both UN and non-UN, have
clearly-defined responsibilities for coordination.
The Cluster system spreads accountability for the delivery of ser-

vices across different Cluster Lead Agencies, and as a result no
single agency is accountable for the entire response.
67
IASC Institutional Cluster Leads

Globally, Cluster leads are responsible for strengthening sys-
tem-wide preparedness and coordinating the technical capacity
to respond to humanitarian emergencies in their respective areas.
Cluster leads ensure that humanitarian activities are coordinated
and do not duplicate efforts. They also act as a “provider of last
resort” in their respective sector i.e. they operationally fill gaps in
cases where no other actor can do so.
Health
WHO
Food Security Logistics
WFP & FAO WFP
Emergency
Telecom-
munications Nutrition
WFP UNICEF
RECO N STRU CTIO N

PREVENTION
Education
UNICEF & HUMANITARIAN
& EMERGENCY Protection
Save The UNHCR
Children RELIEF
COORDINATOR
Early Shelter
Recovery
MIT
IFRC/
UNDP UNHCR
IGA
Y
VER
TIO
Camp
CO
Water,
N
Coordination &
RE
Sanitation
Camp Management and Hygiene
PR IOM/UNHCR UNHCR
EP E
AR NS
EDN PO
ESS RES
DIS ASTER
UNHCR leads and/or co-leads three Clusters: Protection, Camp

Coordination and Camp Management and Shelter.
68
Coordination Architecture in the

Cluster Approach
ERC IASC
GCLA
HC
UN OCHA GOVERNMENT
HCT
CLA
Chief of Misson
Cluster
Coordinator
ERC Emergency Relief Coordinator

(G)CLA (Global) Cluster Lead Agency
HC Humanitarian Coordinator
HCT Humanitarian Country Team
IASC Inter-Agency Standing Committee
UN OCHA Office for the Coordination of Humanitarian Affairs
69
Five Minimum Commitments for

Participation in IASC Clusters
1 Commitment to humanitarian principles, the Principles of
Partnership, cluster-specific guidance and internationally recog-
nized programme standards, including the Secretary-General’s
Bulletin on Special Measures for Protection from Sexual
Exploitation and Sexual Abuse;
2 Commitment to mainstream protection in programme delivery

(including respect for principles of non-discrimination, do no
harm, etc.);
3 Readiness to participate in actions that specifically improve

accountability to affected people, in line with the IASC
Commitments to Accountability to Affected Populations and the
related Operational Framework;
4 A demonstrated understanding of the duties and responsibilities

associated with membership of the cluster, as defined by IASC
ToRs and guidance notes, any cluster-specific guidance, and
country cluster ToRs, where available;
5 Active participation in the cluster and a commitment to consis-

tently engage in the cluster’s collective work.
70
IASC Clusters Typically Involved in

Inter-Cluster Activities
INTER-CLUSTER RESPONSE ISSUE CLUSTERS CONCERNED
Nutrition, WASH, Food Security,

Malnutrition
Health
Cholera Health, WASH, Shelter, CCCM
Shelter, WASH, Protection, CCCM and
Host family support
Food Security
Mental health and psycho-social
Health, Protection, Education
support
Early recovery - rubble removal Shelter, Logistics, Protection
Population movement Potentially all Clusters
Cash transfer programming Potentially all Clusters
INTER-CLUSTER OPERATIONAL ISSUE CLUSTERS CONCERNED
Health and hygiene promotion:

Health, Nutrition, WASH
clarity of roles and synergies
Scheduling distributions, vac-
Food, Health, WASH, Nutrition,
cination campaigns, and other
Logistics
interventions
Humanitarian access Potentially all clusters
Links with Government Potentially all clusters
Cash transfer programmes:
To agree value of cash grants,
Potentially all clusters
cash for work rates, links with
safety-net structures
71
© UNHCR / PRO S FILMS
staff well-being
STAFF
WELL-BEING
72
staff well-being
Psycho-Social Well-
Being of Responders
Most emergency deployments strain the
psycho-social well-being of emergency
responders. The following list of observations
may help you prepare for the stresses of emer-
gency field deployment.
■ You will likely have an impossible job to do – the people, whom
you came to help, are in a dire situation and resources are far
short of needs.
■ Day-after-day you may witness grave human suffering and listen
to stories about trauma and personal loss.
■ You may be living and working in a hostile, even life threatening
environment.
■ You may be exposed to unusual, often serious, health risks.
■ The workload and working hours would probably be “insane”.
■ The climate may be harsh, available food may be of limited
diversity and living premises may not be fully adequate to offer
you privacy and proper rest.
■ Some team-mates may already have a reduced capacity for
interpersonal relations due to chronic fatigue and the team
dynamics may be burdened with conflicts.
■ You may not have time, energy or the means to communicate
with your family and friends at home regularly as they expect.
Many colleagues tend to neglect themselves in such circumstances

– that is a mistake, which may turn serious. remember the impor-
tance of rest, physical exercise, good diet, sufficient sleep and
73
staff well-being
relaxing or self-expressing activities for averting malicious fatigue

– a fatigue which could make your performance and team attitude.
When you grow too tired you are likely to inflict harm upon yourself,
spoil team dynamics and, most importantly, fail to contribute to the
people who most need your contribution.
Tips for Dealing with Stress

■ Know what you are trying to do in every situation. This helps you
to remain constructive when you face problems.
■ Engage in something other than work every day. This helps you
to stay mentally fit.
■ Call, Skype or WhatsApp home. Write a letter if telephone lines
are poor or internet is too slow . This helps you to be who you
are.
■ Create opportunities for extended sleep (at least 6 hours). Make
every effort to eat good food. Drink water rather than alcohol or
sweetened soft drinks. This helps you to remain balanced.
■ Do not drink alcohol excessively to unwind or relax. Practice
breathing or other relaxing exercises instead.
If You are Sexually Assaulted

■ If you are assaulted, do not remain alone immediately after-
wards. Find a trusted friend or colleague to be with you.
■ Do a medical check-up, apply the Post Exposure Preventative
(PEP) Treatment kit, and ask a doctor to collect forensic evidence.
■ Contact a personnel / psychological welfare officer. They are
professionally bound to respect your confidentiality.
74
© UNHCR / B. DIAB
Security
SECURITY
75
Security
Staff Security
Effective humanitarian action requires agencies
to be close to persons of concern. Because
UNHCR is mandated to protect and assist ref-
ugees and people displaced by conflict, it must
manage risk while continuing to operate in some of
the most volatile and insecure environments in the world.
The following points may help you to manage your own security.
Some references are made to UN systems but the concepts are
transferrable across organisations.
Medical Clearance and Security

Clearance
Ensure that you are fit and healthy enough to undertake the work.
This will depend on the nature of the emergency and the environ-
ment so give some thought to what sort of medical care may be
required. You may wish to consult a doctor beforehand.
Make sure that you are cleared by your organisation’s security

management system to be in this operation/environment. If your
organisation does not have a defined security management system,
ensure that you have clearance from your management system. If
you are working with UNHCR in the field, you can seek further clar-
ification on this from the resident Field Safety Advisor or HR Officer.
76
Security
Security Briefings
Most organisations will have a system for briefing new personnel
upon their arrival. While this may be difficult to schedule, especially
during an emergency operation, it is vital that you obtain at least
a basic knowledge of the environment, the threats and risks the
workforce faces face while working there, and the means to lower
your risks while working in the operation.
Write a list of security-related questions before you have your

briefing so that you can make sure that you get the answers that
you need.
Security Plans & SOPs

Most organisations and operations will have security plans for many
different scenarios; office fire plans, medical response plans, and
relocation/evacuation plans are some of the more common ones.
It is strongly recommended that you familiarise yourself with the
security plans in your office! These will help you to know what
actions to take in an emergency (when you have to take action
quickly!) Record important phone numbers and contacts in your
mobile phone, but also carry a hard copy.
Be Aware, Be Prepared
It’s easy to become engrossed in your work, especially in high-
tempo operations. But it’s important to take regular breaks – on
a daily and weekly basis – to step back from the daily work and
consider any activities or events that may lead to security concerns.
Elections, regional politics, rainy seasons and agricultural seasons,
77
Security
may all lend themselves to increasing or decreasing security condi-

tions. Be aware of your surroundings and seek clarification – either
from national or international colleagues, whichever seems more
appropriate – on events and practices that you don’t understand.
Learn about your environment! This will not only help to keep you
safe, it will also help you to serve the persons of concern in the
operation!
Always carry some form of ID (e.g. your national passport) and some
cash about your person, preferably in a concealed pocket or pouch.
Also, if you carry a wallet or other money-holder, keep some of your
money or cards in your pocket separately from your wallet.
Security Training & Information

There are many resources that you can use for security training:
■ UNHCR Learn & Connect
https://unhcr.csod.com/client/unhcr/default.aspx
■ Disaster Ready
www.disasterready.org
■ INSO
http://www.ngosafety.org/
78
© UNHCR / G. GOODWIN
media
MEDIA
79
media
Working with the

Media
■ Treat all news media encounters and anything
you may post on your personal Facebook,
Instagram, Twitter feeds as “on the record”
■ Do take photos and short videos to document what you see.
■ If possible, focus on an individual or a family and share their
story. Always consider the protection and security of those you
interview or film. Respect their dignity and seek their consent.
Explain that the image(s) or story could be seen all over the
world on internet, television, radio, etc. Discuss whether to
change names or other details to ensure their protection.
■ Think of the audience. Ask yourself: why will a reader or viewer
living far away find this story interesting?
■ Explain unfamiliar details and avoid jargon.
■ Use social media to share up-to-the-minute content in real time.
However, never post information that might put persons at risk.
80
media
Media Interview Tips

■ BE PREPARED Know your work and the overall objectives of
the emergency operation in language suitable for the audience
“back home;”
■ BE PHOTOGENIC Your clothing/jewellery should reflect the
situation in which you’re working. Try to do interviews in suitable
places; try to get an agency logo in the shot;
■ BE OPEN Most journalists understand that humanitarian work
is demanding, so there is no need to try to hide problems as
journalists may have seen similar problems before;
■ BE CLEAR AND FACTUAL Explain simply and factually what
your agency is doing. Don’t use words or acronyms which may
seem normal in an internal report but won’t make sense to the
average viewer. Know the statistics number of arrivals, food aid
and other major needs;
■ BE INTERESTING Keep answers short: how big is the emer-
gency, why is it important, and what are the main problems
affecting the women, children, elderly persons and males you
have witnessed today?
■ BE CONTROLLED Don’t argue or continue talking if you feel
you’ve answered the question. It’s best to be positive, and if you
don’t know the answer to a question, say so and offer to get
back to the journalist later, always be helpful and polite.
81
0
Phonetic Alphabet for

Radio Use
A Alfa 1 One
1
B Bravo 2 Two
C Charlie 3 Three
D Delta 4 Four
E Echo 5 Five
F Foxtrot 6 Six
G Golf 7 Seven
2
H Hotel 8 Eight
I India (or Indigo) 9 Niner
J Juliet
INCHES
0 Zero
K Kilo
L Lima
M Mike
N November
3
O Oscar
P Papa
Q Quebec
R Romeo
S Sierra
T Tango
4
U Uniform
V Victor
W Whiskey (or William)
X X-ray
Y Yankee
Z Zulu
5
82
Measures and Conversion
10
Tables
Distance
9
1 mm = 0.03937 in
1 cm = 10 mm = 0.3937 in
8
1 m = 100 cm = 1.0936 yd
1 km = 1000 m = 0.6214 mi
7
1 in = 25.4 mm
1 in = 2.54 cm
6
1 ft = 12 in = 0.3048 m
CENTIMETRES
1 yd = 3 ft = 36 in = 0.9144 m
5
1 mi = 1760 yd = 1.6093 km
1 nm (nautical mile) = 2025.4 yd = 1.853km
4
Area Weight
1 cm2 = 0.155 in2 1 kg = 2.2 pounds 3
1 m2 = 1.1960 yd2
1 ha = 2.4711 acres Temperature
2
1 km2 = 0.3861 mi2 0° C = 32° F

1 in2 = 6.4516 cm2 10° C = 50° F
1
1 ft2 = 0.0929 m2 20° C = 68° F

1 yd2 = 0.8361 m2 30° C = 86° F
0
1 acre = 0.4047 ha 40° C = 104° F

1 mi2 = 2.59 km2 50° C = 122° F
83
l e a r n . u n h c r. o r g
media
VISIT
emergency.unhcr.org
FOR MORE INFORMATION
© UNHCR/ R. ARNOLD
84

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PROTECTING AND EMPOWERING

DELIVERING THE RESPONSE

Users are encouraged to search the UNHCR on-line Emergency

The 1951 Convention

UNHCR also has the competence to provide international protection

Definition of Internally Displaced Persons

Extended Refugee Definitions

■ In Latin America, the 1984 Cartagena Declaration extends the

Safety, Dignity and Rights

SAFETY — the absence of threats or incidents of violence, coercion

DIGNITY — the ability to make choices and feel respected and

RIGHTS — the foundation of protection found in humanitarian refu-

WHY IS PROTECTION IMPORTANT?

For those who cannot return, either because of continued conflict,

Exclusion from refugee status under the 1951 Convention also

Key Protection Actions

Refugee Response Protection Checklist

☑ Refugee status determination

☑ Registration and documentation

☑ Identifying and assisting persons with specific needs

☑ Freedom of movement and detention issues

☑ Age, Gender and Diversity sensitive approach in all assistance

☑ Civilian character of asylum

☑ Monitoring, mitigation and response to Sexual and Gender

☑ Accountability to Affected Populations

Access to Territory and Border

Build confidence with refugees, host communities and civil society

Establish and know Standard Operating Procedures (SOPs) on

Refoulement is best prevented through presence - either directly

Refugee Status Determination

In an emergency, UNHCR will usually conduct individual refugee

Registration in emergencies helps to ensure:

Registration is one of UNHCR’s primary activities at the onset of an

Prioritization of Individuals for

Minimum Data to be Collected in

INDIVIDUAL EMERGENCY REGISTRATION

B. Of all group members, including the principal applicant or head

Identifying Persons with Special Needs

Be proactive in identifying persons with special needs. Persons with

It is essential to analyze the protection and assistance risks that

Age, Gender, and

Child protection means preventing and responding to violence,

Civilian Character of Asylum

Disarmament and Internment

Sexual and Gender

How to Prevent Sexual and Gender Based

2 Identify or encourage the formation of community-based support

networks among persons of concern.

3 In partnership with host communities and the host Government,

establish joint arrangements to ensure the safety and security

4 Work with partner organizations to create safe spaces for

women and for children in, out-of-camp settings. Where these

in SGBV and that systems are in place in schools to identify and

6 In camp settings, work with humanitarian workers and gov-

ernment to ensure camps are set up, structured and managed

7 In urban settings, work with shelter partners to reduce the

risks of SGBV created by overcrowded or insecure housing

8 Explore the provision of vocational, skills training and livelihood

programmes because these can contribute to SGBV prevention

9 Engage with persons who have power (employers, teachers, land-

lords), and educate them about the risks and consequences of