Traditional disaster mitigation efforts should not only ensure provision of basics like clean water, shelter, sanitation facilities and health and nutrition advice, but also ensure long-term development and preparedness. For aid workers and mitigation organisations, emergencies, especially complex emergencies, may be challenging, confusing and personally dangerous. Effective assistance programs require sensitivity to the local culture, neutrality in the allocation of assistance, an understanding of the multiple factors contributing to the emergency, and a strong ability to adapt as circumstances change. Re-working standard tools of organisational development can aid relief organisations in their efforts to adapt in the field.

A. Assessment and Understanding

In order to stay alive, it is crucial that existing organisations adapt to the current situation. Use of the "framework of respect" (Leader, HPG report, 2000) is a vital tool for surviving and working in conflict areas. The framework should include the notion of the particular nature of the conflicting parties including their objectives and strategies, civic institutions and organisations, cultural customs and rules, the regional and international dynamics of the conflict, and the impact of humanitarian organisations. SWOT Analysis is an especially useful tool for this. It is a very effective way of identifying strengths and weaknesses, and examining the opportunities and threats facing the organisation, individual and or the project. Carrying out an analysis using the SWOT framework helps to focus activities into areas where the organisation and project is strong and where the greatest opportunities lie.

SWOT Analysis - how to use it: 1. Internal Analysis: Examine the capabilities of the organisation. This can be done by analysing the strengths and weaknesses of the organisation (here: relief and/or mitigation organisation). 2. External Analysis: Look at the main points in the environment analysis, and identify those points that pose opportunities for the organisation, and those that pose threats or obstacle to performance. 3. The information gathered and analysed in this manner, is helpful in developing strategies that use the strengths and opportunities to minimise the weaknesses and threats, and to achieve the objectives of the organisation, while adapting to shifting situations.

Collecting Data - information sources are likely to include key informants in government, armed groups, media, academia, civil society, religious and humanitarian groups. The process of collecting information is often sensitive and delicate and should be handled accordingly. It is often the people at risk who know most about their situation and have the greatest insight into the threats against them. Confidentiality is crucial. Talking may sometimes put the informants at even greater risk and your enquires may backfire.

B. A conflict sensitive approach

The importance of analysis and knowledge of the root causes of the conflict and the issues facing the community, and a subsequent response according to these findings, cannot be stressed enough.

The international humanitarian relief regime in Sri Lanka largely failed to recognise the importance of adopting such a conflict sensitive approach from the very outset of the 2004 Tsunami emergency response. (Harris, 2006). The activities of many international agencies may have had a negative impact on the prospects of peace by undermining community relationships, altering social dynamics and eroding local capacities. Had international humanitarian interventions understood the dynamics of the conflict and the role of assistance in forming such relationships, they might actually have helped contribute to peace building by tackling the underlying structures and root causes and at very least, not making situations worse.

A stakeholder analysis is a technique organisations can use to identify and assess the importance of key people, groups, or institutions that may significantly influence the success of the activity or project. If used correctly, the analysis will help to reduce or avoid the above-mentioned problems.

Stakeholder Analysis: how to use it: • Identify people, groups, and institutions that will influence the organisations initiatives (positively or negatively). • Anticipate the kind of influence, positive or negative, these groups will have on the organisations initiative. • Develop strategies to get the most effective possible support for the organisation's initiative and reduce any obstacles to successfully implement the program.

C. Coordination issues - civil level

The government's role and responsibility to its citizens is ambiguous in many conflict areas, and disaster management is no exception. One of the problems likely to arise when operating in a complex disaster area is that there is limited legal framework setting out the roles of each institution at either the national or local level. Confusion arises regarding different responsibilities and chains of command for assigning different functions during emergencies. In many cases the disaster mitigation work is managed through collaboration between government and NGOs, but surprisingly capacities have emerged between local political institutions and NGOs. The local authorities are closer to the people affected, and are therefore available to better understand-sometimes even sharing- their needs.

NGOs often find that local structures are less politicised than those involving central governments. This makes it possible for NGOs to carry out many effective actions in collaboration with the local authorities (Rocha and Christoplos, 2001).

The lesson to be learned from this is that closer group efforts between NGOs and local people could prove to be the cornerstone in helping to solve current issues regarding dialogue and coordination on disaster mitigation and preparedness. But one should keep in mind that when supporting those with power, even at this local level, it can often contribute to the perpetuation of the system that made these people vulnerable and the disaster possible.

D. Working with the military

This is a complex area. Disaster mitigation and relief efforts in complex emergencies will inevitably include contact, cooperation and coordination with the military.

Military cultures are as varied as the countries that they represent. It is difficult, therefore, to speak of the military without oversimplification. Nevertheless, certain attributes are unique to a military organisation. The following section, focusing on the role of the military and cooperation issues, is based on UNHCR's training manual "Working with the army" dated 1995. It is intended to provide information that might be useful to relief and disaster mitigation agencies organising fieldwork in areas of conflict.

Each of the points (A-E) above will now be discussed in details. Tools: Stakeholders Analysis and Strength Weakness Opportunities and Threat analysis (SWOT) A. Assessment and Understanding In order to stay alive, it is crucial that existing organisations adapt to the current situation. Use of the "framework of respect" (Leader, HPG report, 2000) is a vital tool for surviving and working in conflict areas. The framework should include the notion of the particular nature of the conflicting parties including their objectives and strategies, civic institutions and organisations, cultural customs and rules, the regional and international dynamics of the conflict, and the impact of humanitarian organisations. SWOT Analysis is an especially useful tool for this. It is a very effective way of identifying strengths and weaknesses, and examining the opportunities and threats facing the organisation, individual and or the project. Carrying out an analysis using the SWOT framework helps to focus activities into areas where the organisation and project is strong and where the greatest opportunities lie. SWOT Analysis - how to use it: 1. Internal Analysis: Examine the capabilities of the organisation. This can be done by analysing the strengths and weaknesses of the organisation (here: relief and/or mitigation organisation). 2. External Analysis: Look at the main points in the environment analysis, and identify those points that pose opportunities for the organisation, and those that pose threats or obstacle to performance. 3. Enter the information collected in step one and two into a table as illustrated below: Positive Negative Internal Strengths Weaknesses External Opportunities Threats The information gathered and analysed in this manner, is helpful in developing strategies that use the strengths and opportunities to minimise the weaknesses and threats, and to achieve the objectives of the organisation, while adapting to shifting situations. Collecting Data - information sources are likely to include key informants in government, armed groups, media, academia, civil society, religious and humanitarian groups. The process of collecting information is often sensitive and delicate and should be handled accordingly. It is often the people at risk who know most about their situation and have the greatest insight into the threats against them. Confidentiality is crucial. Talking may sometimes put the informants at even greater risk and your enquires may backfire. B. A conflict sensitive approach The importance of analysis and knowledge of the root causes of the conflict and the issues facing the community, and a subsequent response according to these findings, cannot be stressed enough. The international humanitarian relief regime in Sri Lanka largely failed to recognise the importance of adopting such a conflict sensitive approach from the very outset of the 2004 Tsunami emergency response. (Harris, 2006). The activities of many international agencies may have had a negative impact on the prospects of peace by undermining community relationships, altering social dynamics and eroding local capacities. Had international humanitarian interventions understood the dynamics of the conflict and the role of assistance in forming such relationships, they might actually have helped contribute to peace building by tackling the underlying structures and root causes and at very least, not making situations worse. A stakeholder analysis is a technique organisations can use to identify and assess the importance of key people, groups, or institutions that may significantly influence the success of the activity or project. If used correctly, the analysis will help to reduce or avoid the above-mentioned problems. Stakeholder Analysis: how to use it: • Identify people, groups, and institutions that will influence the organisations initiatives (positively or negatively). • Anticipate the kind of influence, positive or negative, these groups will have on the organisations initiative. • Develop strategies to get the most effective possible support for the organisation's initiative and reduce any obstacles to successfully implement the program. C. Coordination issues - civil level The government's role and responsibility to its citizens is ambiguous in many conflict areas, and disaster management is no exception. One of the problems likely to arise when operating in a complex disaster area is that there is limited legal framework setting out the roles of each institution at either the national or local level. Confusion arises regarding different responsibilities and chains of command for assigning different functions during emergencies. In many cases the disaster mitigation work is managed through collaboration between government and NGOs, but surprisingly capacities have emerged between local political institutions and NGOs. The local authorities are closer to the people affected, and are therefore available to better understand-sometimes even sharing- their needs. NGOs often find that local structures are less politicised than those involving central governments. This makes it possible for NGOs to carry out many effective actions in collaboration with the local authorities (Rocha and Christoplos, 2001). The lesson to be learned from this is that closer group efforts between NGOs and local people could prove to be the cornerstone in helping to solve current issues regarding dialogue and coordination on disaster mitigation and preparedness. But one should keep in mind that when supporting those with power, even at this local level, it can often contribute to the perpetuation of the system that made these people vulnerable and the disaster possible. D. Working with the military This is a complex area. Disaster mitigation and relief efforts in complex emergencies will inevitably include contact, cooperation and coordination with the military. Military cultures are as varied as the countries that they represent. It is difficult, therefore, to speak of the military without oversimplification. Nevertheless, certain attributes are unique to a military organisation. The following section, focusing on the role of the military and cooperation issues, is based on UNHCR's training manual "Working with the army" dated 1995. It is intended to provide information that might be useful to relief and disaster mitigation agencies organising fieldwork in areas of conflict. The roles of the military supporting humanitarian action takes several directions. Militaries are obligated to provide humanitarian staff security and other protection activities, and supporting local authorities when appropriate. Militaries also transport humanitarian aid, health and medical supplies, while repairing and maintaining infrastructure.

One major point in the UNHCR report reads that, "Prior to a efficient cooperation between humanitarian agencies and the armed forces, it is vital that the military comprehends the nature of a humanitarian mission. To assist the military in doing so, attention might be drawn to the following principles:

Humanity: Human suffering should be relieved wherever it is found. The inherent dignity and other human rights of individuals and groups must be respected and protected.

Impartiality: Humanitarian assistance should be provided without discrimination. Relief must address the needs of all individuals and groups who are suffering, without regard to nationality, political or ideological beliefs, race, religion, sex or ethnicity. Needs assessments and relief activities should be geared to give priority to the most urgent cases.

Neutrality: Humanitarian relief should be provided without bias toward or against one or more of the parties to the political, military, religious, ideological or ethnic controversy which has given rise to the suffering.

Cooperation: It is imperative for the beneficiaries that the collaboration between the army and the aid organisations runs as smooth as possible. To achieve this, good planning is required. Difficulties may arise in coordinating civil and military activities for many reasons. The range of humanitarian agencies and NGOs -representing a wide spectrum of interests and priorities, being of varying sizes, structures, operational styles and organisational cultures - may be confusing to the members of the military, who are accustomed to working with counterparts whose organisational structure is similar to their own. By the same token, some civilians, wary of compromising both their independence and impartiality, and apprehensive about working with an organisation which is perceived to be aggressive, may be reluctant to cooperate with the military" (UNHCR, 1995).

Without a proper understanding of each other's role and without effective coordination, the efforts of the political, humanitarian and military components of an international crisis response can work at cross purposes.

Six Steps to Improve Coordination and Cooperation between Humanitarian Agencies and the Army

1. The definition of common geographic areas of responsibility strengthens coordination between the civil and military components of a common operation. 2. Compatible communications equipment with shared frequencies are essential to coordination on the ground. 3. Collocation or location in close proximity to one another allows relief organisations and military units to maintain constant contact for better coordination and security. 4. The exchange of liaison officers is a means of preserving continuing cooperation. Reciprocal exchange of liaison officers has proven to be a practical means of ensuring quick dissemination of information and the constant presence of a focal point for enquiries and better coordination of efforts. 5. Regular interagency meetings will improve cooperation and avoid duplication of efforts. 6. Routine contact between desk officers helps to maintain daily operations. Communications should take place on a daily basis, or as necessary, between officers of each organisation with complementary responsibilities.

E. Safety of Beneficiaries/Victims

It is important for every NGO and humanitarian agency to look beyond peoples immediate material needs and to focus on wider questions of personal security and the dignity of the whole person. If done, it draws attention to the main violations and abuses that are most likely to threaten people's safety, dignity and integrity as human beings. The immediate protection challenges are to keep people physically safe, to preserve their personal dignity and integrity, and provide for their wholeness as human beings (Slim and Bonwick, 2005).

A good way to think about protection is from the perspective of those who need it. This can best be done by understanding peoples need of protection in terms of threat, violations, vulnerability, capacity and risk. The notion of risk can be summarised in the following equation:

R = T + V x t R = risk, T = threat, V = vulnerability, t = time spent in danger

In order to minimise risk it is necessary to reduce threat, vulnerability, and time spent in danger.

Reducing threat means in short to try to make states, armed groups, and individuals meet their humanitarian responsibilities to protect people in war. Military forces must ensure the protection of the population under the principles and obligations of the binding International Humanitarian Law.

Reducing vulnerability means working directly with affected communities to identify and develop ways in which they can protect themselves and realise their rights to assistance, repair, recovery, safety and redress.

Reducing danger time. This can be achieved by limiting time of exposure, for example by providing security and shortening time children and women spend alone collecting water or wood. Individuals and organisations should keep this risk equation in mind at all times. Hugo Slim and Andrew Bonwick authors of The ALNAP Protection Guide also list a useful overall protection strategy to drive planning and activities: • Who are you trying to protect? • From what are you trying to protect them? • What capacity do people have to protect themselves? • How will you help them? • What resources will you use? • Who will you do it with? • How will you know if you have succeeded?

References and further reading:

Slim, Hugo and Bonwick, Andrew: An ALNAP guide for humanitarian agencies, 2005

Harris, Simon: Disaster Response, Peace and conflict in Post-Tsunami Sri Lanka, The Congestion of Humanitarian Space, 2006

Information on human rights and law available at: www.unhcr.ch

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