Regional Workshop on “Strengthening the Facilitation and
Regulation of International Humanitarian Response in the
MENA Region”
Final Report
Qatar, 19-20 December 2013
The International Federation of Red Cross and Red Crescent Societies (IFRC) would like to thank
Qatar Red Crescent (QRC) for hosting the event and the Norwegian Red Cross (NRC) for their
generous support to the Disaster Law Programme (DLP) in the MENA Region.
The regional “Workshop on Strengthening the Facilitation and Regulation of International
Humanitarian Response in the MENA Region”was organized by the IFRC in partnership with
Qatar Red Crescent (QRC).
The workshop gathered representatives from five National Societies (NS) from the region
namely Jordan, Lebanon, Morocco, Tunisia and Qatar. The workshop also included
representatives from the Office of the Coordination of Humanitarian Affairs (OCHA), the
International Committee of the Red Cross (ICRC), the League of Arab States (LAS) as well as well
as senior representatives from the Arab Red Crescent and Red Cross Organization (ARCO).
The workshop received high media coverage and its proceedings were covered live by Al
Jazeera TV during the two days.
The workshop included presentations and group discussions from practitoners on the
regulatory problems they face in providing and/or coordinating international disaster response
followed by presentations on the existing regional and international frameworks for
international relief as well as the related regional efforts in this regard. This was combined with
group discussions guided by simulation exercises and questionnaires. The experience of
Lebanon in upgrading its legal framework for disaster management was presented as a good
model from the region. Participants were also informed about the main findings and
conclusions of IFRC’s research on regulatory issues in international disaster response as well as
some newer areas of work related to disaster risk reduction and prost-disaster shelter. At the
end of the workshop, the participants developed national action plans that spell out their
Background
Acknowledgments
priorities for strengthening the facilitation and regulation of international response in their
countries with the support of IFRC in addition to elements fora regional plan.
Day one
Day one stared with opening remarks by Dr. Fawzi OUSSEDIK, Head of International Relations
and International Humanitarian Law (IHL) and Mr. MUHANADI from QRC followed by opening
statements by Mr. Mohamed BABIKER IFRC Gulf Regional Representative, Dr. Taher CHINITY,
IFRC Governing Board Member and Secretary-General of the Tunisian Red Crescent (TRC)
Society, and Abdullah AL HAZAA, Secretary General of ARCO. The speakers focused on the
importance of supporting the efforts aimed at facilitating and regulating international relief in
the MENA region given the paramount need for it and in the light of the escalating disasters
and crises in the region.
Regulatory Problems in International Disaster Response
Mr. Ivo FREIJSEN, Head of OCHA’s Regional Office for MENA, started the session by discussing
the importance of legal and policy frameworks to facilitate international relief in large
emergencies and presented briefly OCHA’s partnerships with related international
organizations, including IFRC, on the matter.
Mr. Bassam MOKDAD, Head of Beirut District and RDRT member at Lebanese Red Cross (LRC),
presented the experience of his organization in providing relief, especially in the context of the
Syria crisis. He addressed the main barriers LRC is facing in delivering relief, including visas for
international relief personnel and customs barriers to the entry of relief goods and materials.
Mr. MOKDAD added that with the absence of laws and policies to regulate the matter, personal
contacts with related decision makers are being used to facilitate relief operations.
Furthermore, he highlighted the need for having a team within LRC to follow up the processes
for external relief and for working on facilitating external donations. He concluded his
Proceedings
presentation by stressing the importance of developing laws and policies for the facilitation of
international humanitarian response to replace the non-institutional way of doing things that is
being currently used.
Mr. Ahmed KRIMI, Projects Coordinator at TRC, presented his organization’s experience in
offering relief during the Libya crisis. He noted a few existing laws that give TRC some privileges
while shedding light on a number of gaps in existing Tunisian laws and policies. He highlighted
the challenges TRC faced during the crisis, which included the lack of official mandate for TRC
during disasters, lack of internal and external coordination between related actors, mismatch
between the needs and the received aid. He added that despite the barriers and complications,
the government through the Ministry of Foreign Affairs was helpful in providing directions to
facilitate customs regulations for people and goods, however, these measures were adopted on
an ad hoc basis.
Finally, Mr. BABIKER presented some experience from the IFRC in providing international
assistance, including challenges faced in field operations such as the difficulty in getting visas
and needed permissions for entry of relief goods and materials. He added that even when
permissions have been granted by one official, in many cases, other officials were not
necessarily informed or willing to comply. He also added that the movement within the
affected country can sometimes be impeded by local people of less affected regions who seek
to have a share in the relief materials.
Following the above presentations, participants discussed their own experiences of regulatory
challenges in international humanitarian response. While the major challenges that were
identified concurred with the ones presented by the speakers in terms of visas and custom fees,
participants also added issues related to obtaining residence permits for personnel and tax
exemptions for medications, equipment and other material, as well as the difficulty in opening
bank accounts (due to the barriers faced by relief personnel and organizations in acquiring a
legal personality), and the difficulty in making fund transfers. NSs concluded that strategies and
laws and procedures for relief are needed and that they should play a bigger role with their
governments in their capacity as auxiliaries to these governments. They also added that NSs
should ensure adequate internal organization and coordination. Finally, participants highlighted
the need for playing an advocacy role for the proper implementation of the laws.
Overview of the International and Regional Frameworks for International Relief
Mr. David FISHER, Global Coordinator for DLP at IFRC, provided an overview of the existing
international norms for international disaster response. While highlighting the fact that there is
no comprehensive international legal regime governing international disaster assistance, Mr.
FISHER identified the relevant legal instruments, including sectoral treaties and a growing
number of regional treaties and soft law instruments that exist around this issue. He added that
while these instruments are available, their collective impact on improving cooperation in
international disaster response operations has been disappointing, resulting in many
unnecessary chaos, delays, costs and inadequate aid in recent relief operations. Mr. FISHER
then presented the work that IFRC has been undertaking since 2001, which resulted in the
development of the Guidelines on domestic facilitation and regulation of international disaster
relief and initial recovery assistance (also known as “IDRL Guidelines”). He explained the
importance of these guidelines as recommendations to states on how to prepare their domestic
legal and institutional frameworks in a way that facilitates international humanitarian response.
He concluded by discussing the global progress achieved so far by governments using the
Guidelines to strengthen their laws and procedures.
Mr. Ahmed SULEMAN, Cooperation Delegate from the Kuwait Regional Delegation of the ICRC,
presented the provisions of international humanitarian law (IHL) related to the facilitation and
regulation of humanitarian relief in international and non-international armed conflict. He
addressed the conditions where IHL applies as well as the obligations that it entails, elaborating
on the rights of states and humanitarian organizations willing to undertake relief actions.
Ambassador Hesham YOUSSEF, Advisor to the Secretary General at LAS, presented the role of
LAS in delivering humanitarian assistance, pointing out the challenges LAS and its members
faces in promoting appropriate response and relief, especially in armed conflict areas. Mr.
YOUSSEF highlighted the major achievements of LAS thus far in promoting effective
humanitarian assistance, made possible through the support of NSs and other CSOs. He added
that further efforts should be deployed to make aid correspond better to the needs. He
concluded by stressing three points; the importance of the implementation of the Arab
Cooperation Agreement Regulating and FacilitatingRelief Operations, the need for an increased
coordination between relief actors, and the importance of establishing a network between the
humanitarian actors in the region. Finally, he stressed the important role that media should be
playing in raising awareness on the urgent humanitarian situations in the region.
Dr. Fawzi OUSSEDIK presented the draft Gulf Cooperation Council (GCC) manual on cross-
border relief. He highlighted the fact that this manual is aligned with IFRC’s IDRL Guidelines and
Model Act but also reflects the specificity of the region. He stressed the urgent need for
developing a legal framework as a reference for any international relief action. He added that
this manual is a first step that might lead to a more formal approach to the issue by GCC
countries, such as through the signature of an agreement or the development of further related
instruments and tools.
After the above presentations, participants were engaged in simulation scenarios to explore key
issues in international and regional frameworks for international relief.
Day two
Strengthening Domestic Laws and Procedures for International Response in the MENA Region
Day two started witha presentation of the Lebanese experience in upgrading its legal
framework for disaster management, which was given by Colonel Jean FARAH, Chief Secretary
of Army Staff for Operations at the Lebanese Army. Col. FARAH presented the process that led
to the development of the National Framework for National Response during Disasters and
Crisesin addition to the National Committee for the Coordination of Disasters and National
Crisis Response. He stressed the importance of this plan in coordinating response efforts of all
related actors. He also pointed out the draft law that would establish a Disaster Risk
Management Authority, adding that this draft law is currently with the related parliamentary
committee, which is looking into its adoption.
National Laws and Policies for International Disaster Response and Emerging Issues in
Disaster Law
Ms. Joyce HAKMEH, Regional Legal Consultant for the DLP at IFRC, presented an overview on
the national laws and policies for the facilitation and regulation of international humanitarian
assistance in the MENA region. She started by focusing on the disaster risk profile of the MENA
region, which is witnessing an increased vulnerability from natural disasters on its people and
economies. She then introduced the main findings so far of the research project that the MENA
Zone at IFRC has launched. She pointed out the fact that, in the surveyed countries, national
laws regulating international humanitarian response exist but they are not comprehensive and
there are still many gaps. She added that in the absence of national laws, personal contacts in
MENA are commonly used to facilitate international relief operations. Even when laws exist,
not all stakeholders are aware of them. She concluded by saying that challenges to the
facilitation and regulation of international humanitarian response in the region are big,
however, resources and tools do exist and the work of IFRC in this regard can be of tremendous
value to enhance the situation.
Mr. FISHER then gave a presentation that provided the participants with models of legal
framework from outside the region as well as the Model Act on IDRL. He also gave an overview
on new areas in disaster law which may be of future interest in the region, i.e. DRR legislation
and regulatory barriers to shelter.
Way forward, Conclusions and Recommendations
Based on the presentations given during the workshop as well as the group discussions,
participants were asked in the final session to develop action plans for their own follow-up
work toward enhancing the situation of the legal and policy frameworks for international
humanitarian response operations in their countries. Participants were also asked to give their
thoughts on elements for a regional plan. The resulting plans were announced by Mr. BABIKER
at the end of the session.1
1 The detailed actions plans are included in this report as Annex 1.
Annex 1: National Action Plans and Elements for a Regional Plan
Country Activities/projects for short term
Activities/projects for long term
Role of National Society
Role of IFRC
Lebanon Establish a disaster law (DL) team from within the NS
Circulate among NS branches to choose interested and qualified members
Support and train the team
Deploy efforts to support the ratification of the National Framework for National Response during Disasters and Crises
Follow-up and assist the official entities
Disseminate IFRC/OCHA/IPU Model Law to related government bodies
Facilitate its delivery to the government bodies and follow-up the legislation of relevant provisions as needed
Provide support
Establishing a National Task Force in partnership with the government
Nominate the members of the National Task Force (which would include the members of the DL team)
Support and train the team and participate through the appointment of an advisor/observer member
Implement national workshops with the government
Organize and participate
Provide support and participate
Establish a database on DL and disseminate knowledge products
Disseminate DL products on NS website and on the websites of related
Provide support
official entities
Jordan Establishing a Disaster Law (DL) team from within the NS
Disseminate the project to all NS members
Provide support
Develop scenarios through which international disaster response law can be applied
Organize lectures to increase the knowledge
Conduct workshops with the government to spread the concept of IDRL
Liaising with the government
Establish a team specialized in IDRL from the High Council ofCivil Defence
Liaise with the High Council to establish the team
Establish a database on IDRL
Assist in the information gathering process
Provide support
Morocco Establish a Disaster Law (DL) team from within the NS to include volunteers with legal background
Disseminate among volunteers and form the team
Provide technical support
Develop a list of existing Moroccan laws and acts related to IDRL
Initiate and facilitate Provide technical support
Prepare a comparative paper on the existing relevant laws and compare it with IFRC’s Model Law
Facilitate the process Provide financial and technical support
Develop a file to fill the gaps with regard to IFRC’s Model Law
Develop the required file and communicate with the relevant authorities
Provide support
Develop a file to fill the gaps with regard to Hyogo Framework of Action
Develop the required file and communicate with the relevant authorities
Provide support
Tunisia Prepare a list of interested focal points and coordinators on DL
Provide support
Establish a database on national legislation related to IDRL
Provide support and share experiences and best practices
Spread knowledge and awareness on the laws and stimulate interest with relevant bodies
Play an organizing and stimulating role
Provide support
Establish a national task force on IDRL in partnership with the government
Include all related actors (Customs, Centre for Legal Studies, Ministry of health, etc)
Provide support
Develop a new law on IDRL in partnership with LAS
Play an organizing and stimulating role
Provide support
Establish partnerships with relevant regional and international bodies
Qatar Prepare a list of interested focal points and coordinators on DL
Advocate, motivate and support
Provide support
Establish a database on national legislation related to IDRL
Spread knowledge and awareness on the laws and
stimulate interest with relevant bodies
ARCO Provide needed support to IFRC in its efforts to support NSs
Elements for a Regional Plan:
Forming a regional group with specific tasks and duration in order to:
1. Prepare a database on human resources related to IDRL from the region 2. Compile all national laws related to IDRL from the region
3. Present the gathered laws to experts to compare them with the general directions of the
IDRL Guidelines 4. Prepare a portfolio to the League of Arab States on the above findings
5. Establish a technical team to support this initiative
Annex 2: List of Participants
Country Name Position Organization Email
1. Lebanon BassamMokdad Head of Beirut District-DMU, RDRT member
Lebanese Red Cross [email protected]
2. Youssef Hanna Boutros Head of North District-DMU
Lebanese Red Cross [email protected]
3. Jean Farah Chief Secretary of Army Staff for Operations
Lebanese Army [email protected]
4. Tunisia Taher El Chinity Governing Board Member Secretary General
IFRC Tunisian Red Crescent
5. Ahmed Krimi Projects’ Coordinator Tunisian Red Crescent [email protected]
6. Morocco Mohamed Bendali Director of Response, Youth and Disaster Management
Morocco Red Crescent [email protected]
7. Jordan Motlaq Al Hadid Youth Department Jordan Red Crescent [email protected]
8. Qatar FawziOussedik Head of International Relations and IHL
Qatar Red Crescent [email protected]
9. Khaled Diab Head of Relief and International Development Department
Qatar Red Crescent
10. Sabrina Meddour International Humanitarian Movement Coordinator- General Secretariat
Qatar Red Crescent [email protected]
11. Hesham Youssef Advisor to Secretary General
League of Arab States (LAS)
12. Ivo Freijsen Head of Office Office of the Coordination [email protected]
of Humanitarian Affairs (OCHA) in MENA Region
13. Ahmed Suleman
Cooperation Delegate, Kuwait Regional Delegation
International Committee of the Red Cross (ICRC)
14. Abdullah Al Hazaa Secretary General Arab Red Crescent and Red Cross Organization (ARCO)
15. AbdelAzizMahmoud Al
Racheed
Responsible for Planning and Development
Arab Red Crescent and Red Cross Organization (ARCO)
16. Mohamed Babiker Regional Representative for the Gulf
IFRC [email protected]
17. Joyce HAKMEH Regional Legal Consultant- MENA Zone
IFRC [email protected]
18. David FISHER Global Coordinator- Disaster Law Programme
IFRC [email protected]
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