Neither decades-long development programmes nor food-aid interventions could address the root causes of these crises. Humanitarian aid remained focused on responding to immediate needs, while economic-development programmes could not break the cycle of poverty and vulnerability. Governments and aid organizations have agreed that they must take a longer-term approach, aligning humanitarian and development work to help people better manage risks and build their resilience to future shocks. Other regions have switched to a more prevention-focused approach. After the cyclone in Odisha caused 10,000 deaths on the eastern coast of India in 1999, the Government built shelters, strengthened embankments, planned evacuation routes and conducted drills. In October 2013, as Cyclone Phailin headed for the coast, nearly 1 million people were evacuated. But while similar in scale to the 1999 storm, it caused only 38 deaths.
From managing crisis to managing risk When crisis strikes, local communities are the first to help people in need, and national Governments are primarily responsible for overseeing the response. If the crisis overwhelms local and national capacity, or in situations of conflict, international humanitarian organizations offer support. Historically, this assistance has focused on responding to emergencies as and when they occur. In 2011, less than 5 per cent of all humanitarian aid was used for prevention and preparedness,12 and those activities comprised less than 0.5 per cent of the $3 trillion spent in international aid between 1991 and 2010.13 But in most cases, humanitarian crises are predictable. Their worst effects can be mitigated, or even prevented, leaving hope for a sustainable recovery in which people rebuild their lives and become more resilient to future crises.
“In 1992, all our houses were completely destroyed. This time the houses weren’t all destroyed, even though the level of floodwater was higher, because we were prepared. This year, we were more careful. We kept all our assets and carried them to the emergency shelter, and we made embankments around the houses to stop the water from coming.”
In practice, many humanitarian organizations already go beyond life-saving interventions, helping communities and Governments prepare for emergencies, supporting people’s livelihoods and helping them recover from disasters. But most of these activities have taken place in a largely non-systematic way.
Syeda, South Punjab, Pakistan, 201011
More than 500 experts interviewed for this report agreed that humanitarian assistance needs to contribute more to anticipation and prevention, as well as recovery from crises.
To shift focus requires more than fine-tuning the way humanitarian organizations currently respond. It calls for a profound change in the way humanitarian organizations understand their role, the places where they work and their links with other aid actors and Governments.
13
13