Red Cross Red Crescent Magazine: Matters of Principle

8/9/2019 Red Cross Red Crescent Magazine: Matters of Principle

1/32

Red Cross Red CrescentIssue 1. 2015 www.redcross.in t

T H E M A G A Z I N E O F T H E I N T E R N A T I O N A LR E D C R O S S A N DR E D C R E S C E N T M O V E M E N T

Fundamental Principles 2065What issues will test the Fundamental Principles in 50 years’ time?

Bouncing backHow communities in the Philippines are helping to rede ne the word

Cases of identityA former detainee, visited by the ICRC 40 years ago, searches for the

Matters of principle

Humanity

ImpartialityNeutrality

Independence

Voluntaryservice

Unity

Universality

Facing adilemma…what would

you do?


2/32

The International Red Cross andRed Crescent Movement

is made up of theInternational Committee of the Red CrosInternational Federation of Red Cross and

Societies (IFRC) and the National So

The International Committee of the RedCross is an impartial, neutral and independentorganization whose exclusively humanitarianmission is to protect the lives and dignity of

victims of armed con ict and other situations of violence and to provide them with assistance.The ICRC also endeavours to prevent suffering bypromoting and strengthening humanitarian lawand universal humanitarian principles. Establishedin 1863, the ICRC is at the origin of the GenevaConventions and the International Red Cross andRed Crescent Movement. It directs and coordinatesthe international activities conducted by theMovement in armed con icts and other situationsof violence.

The International Federation of Red Crossand Red Crescent Societies (IFRC) is theworld’s largest volunteer-based humanitariannetwork, reaching 150 million people each year

through its 189 member National Societies.Together, the IFRC acts before, during andafter disasters and health emergencies to meetthe needs and improve the lives of vulnerablepeople. It does so with impartiality as tonationality, race, gender, religious beliefs, classand political opinions. Guided by Strategy 2020— a collective plan of action to tackle the majorhumanitarian and development challenges ofthis decade — the IFRC is committed to ‘savinglives and changing minds’.

TheInternational Red Cross and Red Crescent Movement is guided by seven Fundamental Principles:

humanity, impartiality, neutrality, independence, voluntary service, unityand universality.

All Red Cross and Red Crescent activities have one central purpose:to help without discrimination those who suffer and thus contribute to peace in the world.

International Federation ofRed Cross and Red Crescent Societies

National Red Cross and Red Crescent Societiesembody the work and principles of theInternational Red Cross and Red CrescentMovement in more than 189 countries. National

Societies act as auxiliaries to the public authoritieof their own countries in the humanitarian eldand provide a range of services including disasterrelief, health and social programmes. Duringwartime, National Societies assist the affectedcivilian population and support the army medicalservices where appropriate.


3/32

Guest editorial: The Fundamental Principles at 50

ISSUE 1 . 2015| RED CROSS RED CRESCENT| 1

IN 2015, the International Red Cross andRed Crescent Movement celebrates the50th anniversary of the adoption of theFundamental Principles of the Red Crossand Red Crescent. Since 1965, the Funda-mental Principles — humanity, impartiality,neutrality, independence, voluntary ser-vice, unity and universality — have guidedNational Societies, the ICRC and the IFRCwhen they faced diffi cult choices.

As the rst representative of the ICRC inCambodia after the genocide perpetratedby the Khmer Rouge regime (1975–1979), Imyself was confronted with a delicate situ-ation that had to be decided in the light ofthe Fundamental Principles. (To read these principles in their entirety, see page 4.)

As we were discussing with the govern-ment in Phnom Penh about putting in placea vast relief action in favour of the genocidesurvivors, several tens of thousands of refu-gees were in effect stuck at the border with Thailand. They were still inside Cambodia,in territory controlled by the Khmer Rouge. Their situation was dramatic and the ICRCdecided to come to their aid. The govern-ment of Phnom Penh saw this operation asa violation of their national sovereignty andthey threatened to expel the ICRC if it didn’tcease the relief operations via Thailand. TheICRC therefore faced a diffi cult choice thatit resolved in light of the principle of Impar-tiality. (To read about how the ICRC resolvedthis situation, see page 10.)

This example highlights the importanceof the Fundamental Principles. Of all theresolutions adopted at International Con-ferences of the Red Cross and Red Crescent,the resolution concerning these principles

is the most important, the one most oftenreferred to and the one that has moststrongly contributed to guiding the work ofthe Movement and ensuring its coherence.

However, it would be mistaken to believethat the Fundamental Principles originatedwith this formal adoption. From the veryoutset, the Movement consciously fol-lowed a number of fundamental principlesdictated by the mission assigned to it andre ected in the resolutions of the foundingconference of 1863, which gave birth to the

Red Cross. These principles were also re-ected in article 6 of the original Convention

for the Amelioration of the Condition of theWounded in Armies in the Field of August1864, which marked also the creation of con-temporary international humanitarian law.

Thereafter, there were numerous refer-ences to the fundamental principles. Since1869, in order to be accepted as membersof the Movement, new National Societieswere required to observe the fundamen-tal principles. On the other hand, until theSecond World War, the Movement madelittle effort towards reaching a universallyaccepted formulation of those principles.

While the Movement was constant in layingclaim to these fundamental principles, itappeared unwilling, or unable, to set themdown in a form that would be binding onall its members. The drawbacks of this situ-ation became brutally apparent during the

Second World War, when references to thefundamental principles failed to preventserious abuses from being committed bycertain components of the Movement.

After the Second World War, both the ICRCand the IFRC sought to set these principlesdown in a form that would be universallyaccepted. The momentum for decisiveprogress came from Jean Pictet’s bookRed Cross Principles, published in 1955. Fol-lowing its publication, the ICRC and theIFRC set up a joint commission, which setdown the principles in a declaration con-taining seven articles. This declaration wasadopted by the International Conferenceof the Red Cross in Vienna in 1965.

This dec laration of the FundamentalPrinciples represented a charter for theMovement. On the one hand, it permit-ted the adoption of a universally acceptedstatement of the principles that the Move-ment had advocated from the start without

actually agreeing on their de nition. Onthe other, it gave these principles new legaleffect, making them a source of duties forall the components of the Movement.

Although states are not directly boundby the Fundamental Principles, they arerequired, by virtue of the statutes of theInternational Red Cross and Red CrescentMovement, to respect the duty that thecomponents of the Movement have to ob-serve them.

For the Movement, the principles haveserved as an extraordinarily effectiveguide during these past 50 years, as dem-onstrated by our experiences in Cambodiain 1979. Since we have had these principles,on which we depend, we should do noth-ing to weaken their authority. We shouldbe ready, however, to continue to analysethe fashion in which they are put into ac-tion and continue to put them into practice

in all our actions.

ByFrançois BugnionMember of the International Committee of the Red Cros

P h o t o : I

F R C

Guiding lights throughmany dilemmas


4/32


5/32

16. Bouncing back

24. Cases of identity


ContentsIssue 1. 2015. www.redcross.int

Articles, letters to the editors and other correspondence

should be addressed to:Red Cross Red CrescentP.O. Box 303, CH-1211 Geneva 19, SwitzerlandE-mail: [email protected] ISSN No. 1019-9349

EditorMalcolm Lucard

Production Offi cerPaul Lemerise

DesignBaseline Arts Ltd, Oxford, UK

LayoutNew Internationalist, Oxford, UK

Printedon chlorine-free paper by IRL Plus SA, Lausanne, Switzerland

Editorial boardICRC IFRCMohini Ghai Kramer Benoit CarpentierDorothea Krimitsas Pierre KremerSophie Orr Nina de Rochefort

We gratefully acknowledge the assistance of researchers and

support staff of the ICRC, the IFRC and National Societies.The magazine is published three times a year in Arabic, Chinese,English, French, Russian and Spanish and is available in 189countries, with a circulation of more than 70,000.The opinions expressed are those of the authors and not necessarilyof the International Red Cross and Red Crescent Movement.Unsolicited articles are welcomed, but cannot be returned.

Red Cross Red Crescent reserves the right to edit all articles. Articlesand photos not covered by copyright may be reprinted without priorpermission. Please creditRed Cross Red Crescent .The maps in this publication are for information purposes only andhave no political signi cance.

On the cover:For 50 years, the Fundamental Principles have guided

the Movement through its humanitarian endeavours. Often, the realitiesit confronts pose questions and challenges that must be navigated usingthe principles as guide and inspiration. Illustration by Piero Macola.

Image credits (from top): Piero Macola; ICRC; Rommel Cabrera/IFRC; AFPPhoto/HO/Cyprus Defence Ministry; Hector Gonzalez de Cunco/IFRC.

Cover story 4Matters of principleThe Fundamental Principles turn 50 years old thisyear. What better time to examine the challengesfaced in putting these key guiding principlesinto action? In this story, a volunteer fromPakistan tells how what started as a routine fooddistribution mission revealed a series of dilemmas,questions and diffi cult choices.

An early test of principle 10Following the genocide perpetrated by the KhmerRouge regime, the ICRC launched its biggest ever

aid operation in cooperation with UNICEF — andthe Fundamental Principles, adopted in 1965,faced one of their rst big tests.

A delicate balance 12A National Society asks for your advice in how tobalance its auxiliary role with local governmentand the principle of independence.

Focus 14Fundamental Principles 2065Paris-based artist Pat Masioni imagines some of

the issues that might confront the FundamentalPrinciples 50 years from now.

4. Matters of principle

10. An early test of principle

20. Hard times, new energy

Disaster risk reduction 16Bouncing backHow communities in the Philippines are helping torede ne that now ubiquitous humanitarian buzzword‘resilience’ from the ground up, as they cope withsuccessive storms and other natural disasters.

Economic crisis and migration 20Hard times, new energyA strategic crossroads between continents in themiddle of the Mediterranean, the Republic ofCyprus is coping with increasing migration in themidst of nancial crisis.

The missing 24Cases of identityPatricio Bustos says visits from ICRC delegateswhen he was imprisoned in Chile in the 1970slikely saved his life. Now, as head of the country’sforensic services agency, he’s working, withhelp from the ICRC, to nd answers about whathappened to those who disappeared duringChile’s years of dictatorship.

Resources 29Answers to your questions about internationalhumanitarian law; a ve-year Haiti progress report;a brochure on explosive remnants of war; marketanalysis for the humanitarian; and an animatedvideo entitled ‘You probably don’t have Ebola if…’


6/32

4 | RED CROSS RED CRESCENT| ISSUE 1 . 2015

The Fundamental Principles turn 50 years old this year. Whatbetter time to examine the challenges faced in putting

these key guiding principles into action?

Matters ofprinciple

The FundamentalPrinciples of the

InternationalRed Cross andRed CrescentMovement

ImpartialityIt makes no discrimination asto nationality, race, religiousbeliefs, class or political

opinions. It endeavoursto relieve the suffering ofindividuals, being guided solelyby their needs, and to givepriority to the most urgent casesof distress.

NeutralityIn order to continue to enjoythe con dence of all, theMovement may not take sides in

hostilities or engage at any timein controversies of a political,racial, religious or ideologicalnature.

HumanityThe International Red Cross and Red CrescentMovement, born of a desire to bring assistance withoutdiscrimination to the wounded on the battle eld,

endeavours, in its international and national capacity,to prevent and alleviate human suffering wherever itmay be found. Its purpose is to protect life and healthand to ensure respect for the human being. It promotesmutual understanding, friendship, cooperation andlasting peace amongst all peoples.

A l l i l l u s t r a t

i o n s /

P i e r o

M a c o

l a


7/32

Malik Abdul Hakim is a living example of how the principles of neutrality and humanity can enableto ease the suffering of fellow human beings. Hakim’s main task, as recently featured in theNew York Times,is to deliver bodies of those killed in ghting back to their loved ones. He does this for people on allthe Afghan con ict.

“He collects the bodies of soldiers and police offi cers killed in areas of Taliban dominance and tahome,”New York Times reporter Azam Ahmed wrote in the 5 January 2015 edition. “From governmentcenters, he carries slain insurgents back to their families, negotiating roads laced with roadside bom

Hakim is able to do this, according to the story, because he gained a reputation for neutrality durintenure as a volunteer for the Afghan Red Crescent Society and for not taking sides in the political anbattles raging in his war-torn country. Neutrality is one of the seven Fundamental Principles of the Rand Red Crescent Movement and it is a critical tool in helping people affected by crisis.

Movement-wide dialogueAround the world, these Fundamental Principles — humanity,impartiality, neutrality, independence, voluntary service, unityand universality — serve as an inspiration, guide and tool forenabling action and ensuring that people of all persuasionstrust the Red Cross Red Crescent Movement’s humanitarianmotivations. As we mark the 50th year since the adoption of theseven principles as we know them today, an exploration of theircontemporary application is more critical and relevant than ever.

Why is this so? Since 1965, the humanitarian sector has expanded and diversi ed dramatically.Today, thousands of organizations offer a wide array of assistance under a diverse range of operatprinciples — far from the situation when the Movement and a few other key organizations delivethe bulk of humanitarian aid. In recent decades, aid has also often been used as political tool, bunwith development programmes or military campaigns in order to win the hearts and minds of locapopulations. These trends have sometimes led to confusion, mistrust or even rejection of the core

principles that enable effective humanitarian action.For our diverse Movement, the application of the principles in complex, politicized or even dan

environments can also raise signi cant challenges. Every day, Movement volunteers, staff and leaface tough decisions in which the principles play a central role.

For these reasons, a Movement-wide initiative was launched in 2013 to reinvigorate understandthe principles by “fostering open, inclusive and constructive dialogue and debate across the Movein order to generate a bet ter common understanding of the relevance of the Fundamental Principltoday’s humanitarian action”.

This dialogue is happening via public forums, debates, regional workshops within the Movementwebinars (see our website www.redcross.int for a list of links), and through promotional campaigns World Red Cross Red Crescent Day on 8 May, and the 50th birthday of the Fundamental Principles All this leads up to the 32nd International Conference of the International Red Cross and Red CrescMovement in December, during which the principles will be a core theme for discussion and action.

Red Cross Red Crescent magazine’s contribution begins with this cover story about a food distributioin which volunteers faced a series of tough choices related to the principles. We then asked otherexperienced humanitarians for their thoughts on the dilemmas these volunteers faced that day. Weyou tell us: what would you do? What have been your challenges and successes?

Speaking of principlesPICTURE YOURSELF as a volunteercarrying out a food distribution in arural community in Balochistan, Paki-stan, after a terrible ood. You are standingon top of a truck full of food parcels, so thatthe assembled crowd can hear you better asyou begin to speak.

Suddenly, a gunshot rings out nearby. Itstartles and shocks you, and you nd your-self staring at a gun.

This was exactly the scenario that facedPakistan Red Crescent Society volunteerSaboor Ahmed Kakar as he and a team ofvolunteers tried to unload supplies froma caravan of trucks in the ood-affectedarea. The operation was the turning pointfor Kakar: he had to confront a chain of dif-

cult choices that shaped what it meantto be part of the Red Cross Red CrescentMovement, how far he was willing to gofor its Fundamental Principles and how hecould possibly apply them when forced todecide between imperfect solutions.

IndependenceThe Movement is independent. TheNational Societies, while auxiliariesin the humanitarian services of their

governments and subject to the lawsof their respective countries, mustalways maintain their autonomy so thatthey may be able at all times to act inaccordance with the principles of theMovement.

Voluntary serviceIt is a voluntary relief movement notprompted in any manner by desire forgain.

UnityThere can be only one Red Cross or oneRed Crescent Society in any one country.It must be open to all. It must carry on

its humanitarian work throughout itsterritory.

UniversalityThe International Red Cross and RedCrescent Movement, in which allsocieties have equal status and share

equal responsibilities and duties inhelping each other, is worldwide.



8/32

A day of dilemmasKakar had joined a year earlier and by thetime the Damani dam broke in 2009, hewas an experienced and well-trained vol-

area and made the usual arrangementsfor a distribution. As is often the case insuch situations, when Kakar arrived athis destination with 25 trucks full of foodparcels, the people clustered around theconvoy to receive desperately neededsupplies.

But as the team was unloading, a manapproached and introduced himself as alocal leader. He said he knew who neededhelp the most and so he wanted to takeover the cargo and distribute the food,thereby strengthening his prospects ofwinning upcoming local elections.

Kakar knew that to accept this demandwould compromise the principle of im-partiality, with distribution potentiallyproceeding according to certain people’swishes or personal connections ratherthan family need. Kakar was very con-scious, therefore, of a tension betweenthe principle of impartiality and the pos-sibility that the local leader might make itdiffi cult, or impossible, for the volunteersto do their jobs that day, or to come backin the future.

unteer. It happened to be Kakar’s turn asteam leader for the food distribution onthat dramatic day. Before the dis tribution,the branch contacted local officials in the


The dilemma:what wouldyou do?In putting the principles into action,there is not always a clear answer abouthow to apply them in each context. To get perspective, we’ve asked someexperienced humanitarians to givetheir views on each dilemma that Kakarfaced that day.

I would tell thelocal leader,“Thanks a lot for your humanitarianfeelings, but can you tell me wherethose poor people

are? Where do they live? We have to registerthem in our database and take informationfrom them. This is a long process and youneed not to bother yourself with it.” You

should deal with all the parties, especiallyin times of war, from the same distance.Because if you give relief supplies to oneleader, who represents one side or another,

then the people on the other side willsuspect that you are not independent and

impartial. You need all sides to trust you tocomplete your missions.Fadi, a volunteer with the Syrian Arab Red Crescent

Distribute the food yourself. Verify allinformation. It takesmore time and weare all impatient —but in the long run itbuilds trust.Tore Svenning, head of secretariat, StandingCommission of the Red Cross Red Crescent

To give the leader the food wouldcompromise impartiality. So I wouldturn his offer down in a diplomatic way.I have to put the peoples’ needs rst, andmake sure they get supplies according totheir needs. Accepting this kind of offer

will also cause theloss of credibilityamong the people.

During any reliefoperation, anyNational Societywill face this kind

of challenge so you always need to havediplomatic connections to make sure that

you can provide the highest possible levelof service.Salam Khorshid, Syrian Arab Red Crescent andmember of IFRC’s Youth Commission

It’s a risky situation,but I would say,“I need to makethe choice aboutwho is the mostvulnerable.” PerhapsI might offer them tohelp us in some way, but only if we makethe decision about who receives the aid. Idon’t know if it would have worked, but Iwould try this negotiation. And if he says,“No,” then I would probably say, “Halt thedistribution.” Yves Daccord, Director General, ICRC

Fadi and Tore Svenning were responding to a

question about this dilemma posted by the magazineon the Movement’s Fundamental Principles Facebookpage. What would you have done? Send yourresponses [email protected].

P h o t o : S A R C

P h o t o : E r i c a

T o n g - J

u n o

d / S t a n

d i n g

C o m m

i s s i o n

P h o t o : I

C R C

P h o t o : S A R C


9/32

Kakar’s decisionKakar decided impartiality took priority, asthe threat was only a possibility. Breakingthe principle of impartiality would also con-

ict with the principle of humanity, as thepeople most in need might not receive food.

“I greatly honour you as a leader,” he toldthe man, “and you are highly important tome, but I cannot give you these supplies as itis against our principles and ways of distribut-ing food. If you are also a victim of oods, ofcourse we will give your family the supportthat we can in accordance to your need.”

The leader commanded his followers totake over the trucks, but the community joined together to stop them. When theleader realized the community wasn’t withhim, he gave an order and a bodyguard

red a shot in the air. Kakar was grabbedby a villager and thrown off the truck toavoid further danger. Members of the com-

munity fought and subdued the shooterand nally handed him to the police.

For the moment, Kakar and his teamappeared to be out of danger. But who

there could guarantee their safety? So theteam faced their second dilemma: shouldthey stay and distribute the food or turnthe convoy around until the village and itsleaders could promise that the humanitar-ians would be safe? And even if they weresuccessful in unloading their trucks in anorderly way in accordance with the prin-ciples, would they be able to return withmore supplies in coming days?

In the end, the branch volunteers wereable to distribute the food following theusual procedures. Once back at branchheadquarters, however, the team neededto discuss and think about the situation.At first, they leaned towards stoppingfurther distributions. “After the incident,”explains Kakar, “we said we would notwork there any more, because our safetywas more important.”

But even with threats looming, the prin-ciple of humanity, the very reason Kakarhad joined the Red Crescent, tugged at hisconscience. “Yes, we had decided to pullout,” he recalls, “but my mission was to helphuman beings, not to leave them behind.”

The volunteers agreed and asked stafffor the decision to be reversed and fordeliveries to resume. “It was only becauseof the courage of my colleagues and theirdedication that I could work like this,” Kakarrecalls. “There were about 35 of us, everyone very committed to the FundamentalPrinciples. The incident was covered by themedia, and the National Society and ourlocal branch supported our decision.”

ByIsmael VelascoIsmael Velasco is CEO of the Adora Foundation, a non-pro t organization based in the United Kingdom.


The decision: what would you have done?What do you think of the comments made in response to the branch’s decision? Would you accept the army echallenges have you faced in trying to put the Fundamental Principles into action? Tell us your story:[email protected].


10/32


11/32


IN BELIZE, one of the most commondilemmas faced while working with com-munities, no matter how large or small, isthe interference of politics in humanitarianaction, says Lily Bowman, secretary generalof the Belize Red Cross Society. “This causesdisparities among community membersand has contributed to tensions and con-

icts that have lasted many years.“When the Belize Red Cross began im-

plementing the Resilience in the Americasproject in eight communities in northernBelize, the project team experienced rsthand the challenges of working with peo-ple divided by politics — a situation thattruly hampered the neutral work of our or-ganization. In the selection of bene ciaryfamilies, for example, if we spoke withpeople from one political party, then onlytheir party members would be selected. The same was true if we spoke to thosefrom the other political party. There was

no focus on vulnerability or need.“In order to apply neutrality, however,

there can be no favouritism and one mustavoid political controversies. In the village of

San Victor, for example, we are constructing20 elevated latrines to address the problemof water contamination caused by oods,as well as low-lying latrines for the elderlyand disabled. When the project team rstintroduced the project, the San Victor com-munity was deeply divided politically. Manycommunity members were unwilling tointeract with one another. The tension washeavy and it hampered our progress.”

What would you do? How do youmaintain the principles of neutrality andimpartiality in such a highly partisan envi-ronment?

Getting past the political divides thatsplit local communities in Belize took somecreativity and hard work. To address thistension, the Belize Red Cross formed com-

munity support groups and asked localpeople to join.

“These groups were comprised of com-

munity members who displayed genuineinterest in creating sustainability, security,accessibility to services and economic op-portunities for their community, withouta political agenda,” says Bowman. “Eventhough they were from different political,religious and family backgrounds, theywere willing to come together at a com-mon table to address the problems andneeds in their community.”

Group members were also introducedto the seven Fundamental Principles, inparticular the principle of neutrality. Underthe guidance of the project team, groupmembers applied the principles to everyactivity and every decision-making processand discussion. By doing so, they were ableto set aside their political differences andidentify a list of the most vulnerable fami-lies, from both political parties, who shouldreceive the latrines. The group is followinga similar process in a project to create eco-nomic opportunities for young people.

Bowman says the struggle in other com-munities continues, but there have beennumerous successes by following modelssimilar to this one.

… what would you do?Neutrality at thecommunity level

DANISH RED CROSS volunteer andgoodwill ambassador Torbjørn‘Thor’ Pedersen recently foundhimself in an awkward position vis-à-visthe principles of neutrality and impartiality.Now on a worldwide tour of every countrywithout taking an airplane, Pedersen al-ways visits the National Society and writesabout his experiences on his blog (www.onceuponasaga.dk/blog).

“One day I found myself visiting a Na-tional Society where, as always, I wasgreeted with warmth and hospitality.While I was there, the National Societyinvited me to sit in on a leadership semi-

nar for Red Cross youth. I sat down in theclassroom and was handed the same ma-terial as everyone else. To my surprise Ialso found a pamphlet from an evangelical

Christian denomination known for its ac-tive recruitment methods. I looked aroundthe classroom and saw the same pamphletlying on the tables of the other partici-pants. This outraged me as it stronglycon icted with my understanding of theFundamental Principles.”

“I chose not to say anything during theclass. Later when I was alone with the RedCross youth leader I brought up the subjectof the religious pamphlet. The leader re-marked that he was aware of this. Howeverhe said the teacher was very good and hadbeen a part of the Red Cross for many yearsas a volunteer educating young people.

Besides, he said, the teacher never broughtup the issue of religion while teaching. Hav-ing in mind that I was a guest, I discreetlyquestioned the youth leader if he could

see that this was a problem. He just nod-ded his head and shrugged his shoulders.Personally, I think the local National Society

should keep the educator but tell him thatthe distribution of unrelated pamphletscannot take place under the Red Crossroof.’’

Religious materials under the Red Cross roof?

P h o t o : B e l

i z e

R e d

C r o s s

S o c i e t y

P h o t o : T o r b

j ø r n

P e

d e r s e n


12/32


13/32


But because the new regime lacked cred-ibility with the Cambodian population, thecountry quickly descended into civil war. The Khmer Rouge pro ted, taking controlof nearly all Cambodia’s countryside.

“During this civil war, the ICRC was pre-sent in Cambodia with large relief andmedical programmes, as well as family re-uni cation services and other activities,”Bugnion recalls. “The ICRC and UNICEFwere the only two organizations thatstayed until the Khmer Rouge took PhnomPenh on 17 April 1975.

“On that day, the capital, which had apopulation of 2 million people, was com-pletely emptied. There were no exceptions,neither for those injured in the war, nor theelderly, nor young women who had justgiven birth the night before.”

Without functioning institutions, amonetary system and no viable economy,people had to fend for themselves. Many

were executed or sent to work camps.Some 2 million people were killed —roughly 25 per cent of the country’s thenpopulation of 8 million. “During that pe-

riod, there was no possibility for the ICRCto act [within Cambodia],” Bugnion recalls.

A dilemma for ImpartialityFour years later, weakened by internaldivisions, the Khmer Rouge fell to the Viet-namese forces, and the People’s Republic

of Kampuchea was established. Six monthsafter that, Beaumont and Bugnion were onthe plane to Phnom Penh.

But just as the two were negotiatinga relief package with new Cambodianauthorities, another situation was devel-oping near the Thai border. Seeking toescape the ghting, a massive exodusof refugees had been moving towards Thailand. At rst , Thailand accepted therefugees. But as the numbers grew, itclosed the border, leaving thousandstrapped in border zones inside Cambodiacontrolled by the Khmer Rouge.

In response, the ICRC and UNICEFmounted a major relief action in favour ofthe trapped refugees. As neither organiza-tion could gain access to those refugeesfrom the Cambodian side, they brought insupplies through Thailand.

“When the government of the People’sRepublic of Kampuchea learned of this, itreacted in an extremely strong fashion,”

Bugnion recalls. “To a certain extent, it wasunderstandable. This was the reaction ofa government that was not recognizedby the international community andwhich had the feeling that these two hu-manitarian organizations were, in a sense,tramping their sovereignty.

“The government took a very rm po-sition, saying, ‘If you want to engage andcollaborate with us, it must be only withus and you must stop all your operationsacross the border’,” recalls Bugnion. Itwas not an idle threat: the authorities de-manded their passports, granting them 48more hours inside the country.

“It was extremely troubling becauseon the one hand we thought: it’s only byworking with the government that wewill be able to assist the majority of peo-ple living in Cambodia. But who are we toeffectively ignore the situation of severaltens of thousands of people, who are in aneven worse situation?”

What would you have done in this situation? To ndout how François Bugnion and the ICRC responded,turn to page 13.

“It was extremely troubling

because on the one hand wethought: it’s only by workingwith the government that we willbe able to assist the majority of people living in Cambodia. Butwho are we to effectively ignorethe situation of several tens ofthousands of people, who are in an

even worse situation?”François Bugnion, speaking about one of the greatestdilemmas concerning the Fundamental Principles hefaced during his career with the ICRC.

L ICRC delegate François Bugnion during his mission toCambodia in 1979.Photo: ICRCJ An image taken during joint ICRC and UNICEF reliefoperations launched near the Cambodian border in 1979.Photo: ICRC


14/32


EVER SINCE ARMA ORUC took thehelm of the Zenica branch of RedCross Society of Bosnia and Herze-govina (BiH) ve years ago, the branch hasslowly built up a reputation among thecommunity and local authorities as a criti-cal service and important partner duringtimes of crisis.

But it hasn’t been easy. Local authori-ties have not always seen the branch as apartner in preparing for and respondingto natural disaster, while for many years,the branch was unable to get accessto badly needed government funding.

Things started to turn around after branchactivities such as blood donation and rstaid captured the attention of the media,which brought wider recognition of thebranch’s contributions to the community.Ultimately, the branch’s efforts paid offand local authorities allocated the branchan annual budget of approximately US$8,000.

Then, in May last year, the organiza-tion was thrust into the spotlight whenthe worst oods in a century hit BiH andseveral other countries in the region. Thesituation required fast decisions under the

considerable pressure caused by an un-folding, widespread disaster. Throughout,branch staff cooperated with local authori-ties on a daily basis, responding to a widerange of urgent needs. Local offi cials andbene ciaries saw rst-hand the effi ciencyof the National Society’s distribution sys-

tem, the ability of its workers to managethe registration of those receiving aid, aswell as the enthusiasm and commitmentof its staff and volunteers.

Now, almost a year after that crisis, theZenica branch — as well as branches innearby Bijeljina and Brcko — enjoy morerespect and better recognition for theirwork, by both local communities and au-thorities. For this reason Oruc feels morecon dent in approaching local authoritieswith proposals aimed at improving coop-eration and strengthening the auxiliarystatus of the National Society at branchlevel. One key aim, she says, is for the Zenicabranch to become part of the area’s offi cialcivil protection team, which coordinatespreparations for crisis and emergency re-sponse. She would like to see the branch

A delicatebalanceWeighing independence with the auxiliary role to government.

The dilemmas that aid workers face based on the principles are often described as a balancing act. Here is a case in point:a community on one side of a con ict asks why you are giving more aid to the other side. “Because they have greater need andthe principle of impartiality requires us to help the most vulnerable rst and provide assistance in proportion to the need,” youexplain. They respond by saying: “Either you provide us with more equal amounts of aid or we will no longer see you as neutral

in this con ict and you will no longer be able to operate in our territory.” What do you do?

Neutrality To demonstrate neutrality, one option is toset up more operations in the less-affected

side so that trust and access to this populationare maintained. This might con ict with the

principle of impartiality but it could be a betteralternative than losing access to all those in

need on one side of the con ict.

ImpartialityIn this scenario, maintaining strict adherence

to impartiality would mean losing the trust andacceptance on one side of the con ict, as well

as access to people in need in the territory theycontrol. It could also lead to larger perceptionissues that might affect future aid operations.

On the other hand, how far can you go incompromising on this essential principle?

HumanityAs all the consequences of your decisions

are being weighed in the balance, theprinciple of humanity, which calls on us

“to prevent and alleviate human sufferingwherever it may be found”, underlines your

considerations and deliberations.

Balancing act


15/32


become an equal and independent partnerin preparation and response; now, duringcrisis, there is a tendency to take directionfrom civil protection offi cials.

The Zenica branch, therefore, faces achallenge common to many Red Crossand Red Crescent National Societies: how

to forge a close working relationship withlocal authorities while retaining autonomyin its humanitarian actions.

ByAndreea AncaAndreea Anca is a senior communications offi cer for the IFRC.

L Arma Oruc, head of the Zenica branch of Red Cross Society of Bosnia and Herzegovina. Photo: Andreea Anca/IFRC

What would you do?How would you advise Oruc so that her branchcan operate in accordance with the FundamentalPrinciple of independence, which acknowledgesthat National Societies “are auxiliaries in thehumanitarian service of their governments” but saysthey must also “maintain their autonomy”?Send your responses to all these questions [email protected]. They will be considered forpublication in the next edition.

(continued from page 11) After the ultimatum in Phnom Penh, Beaumont andBugnion returned to Geneva for consultations with the ICRC and UNICEF. “TheICRC was divided,” says Bugnion, “but nally we agreed that this was not reallyan issue of international humanitarian law, but a problem of the respect of theFundamental Principles; speci cally the principle of impartiality would guide usin this particular case. The principle of impartiality compelled us to continue thecross-border operations, in spite of issues of state sovereignty and of threats of

expulsion from the country.”It was a risky balance. But in the end, it came down to a simple calculation:

“If the government decided to expel us, that would be their decision,” Bugnion

says. “But if we decided not to assist people that we could help, then that wasdecision. From that standpoint the decision was made: we took the risk.

“So I returned to Cambodia with the authorization from the ICRC leadershto pursue the operations across the Thai border and the approval for a plan ofaction for the most extensive rescue operation ever attempted by the ICRC. Ita budget of US$ 110 million, which represented 3.5 times the global budget ofICRC for the previous year.”

The objective was to feed 3 million people, completely re-equip the hospitaand clinics, and import seeds and tools to restart agriculture, among other thin“The counterpart to all of that would be that we would be rm on the questionrespect of the principle of impartiality.”

Upon their return to Cambodia, Beaumont and Bugnion met with the Minisof Foreign Affairs. Ultimately, the minister agreed with the plan of action,under the condition that discussion regarding the operations on the Thai bordecontinue. “In short, he agreed to separate the question of trans-border operatiofrom the rest of the operation,” Bugnion recalls.

“What is interesting to me is that confronted with this dilemma, and seeingthat international humanitarian law didn’t clearly indicate the path to follow,it was truly on the basis of the Fundamental Principles that the ICRC ultimatesolved the problem.

“This experience is useful relative to other situations where we are put undpressure, where we are told not to help certain people who are under the poweof a political body that has not yet been recognized,” Bugnion suggests. “For

example, in cases of civil war when governments say: ‘You can only help thowho are under our control, not those who are under control of our adversariesFrom this point of view it was an important precedent.”

An early test of principle

P h o t o :

I C R C


16/32


Field report: By Nora Bendali,

emergency medical techn ician. As

ood waters lled the automated,

unmanned detention centre, the Red

Cross Red Crescent robo-dog was able

to pull me and about 50 detainees

to safety. But the rescue put us in a

dif cult position with an anonymous

armed faction runni ng the detentioncentre, which accused us of v iolating

our neutrality by rescuing the

trapped prisoners.

You say you are neutral, but you let our prisoners escape...

We had no choice, they would have

drowned and there was no one runningthe detention centre to help them.

Look, in our countypeople live long and greatlives; there is a price forthat if crisis comes.

But that is just one of thechallenges facing the Movement…

Yeah, but what happenswhen your support goesaway? How will we carefor everyone then?

But with outsidesupport, we canhelp everyone…

These people were foundwithout personal dataimplants. This is illegalhere. We will come today toreclaim them…

But this goes against our

basic principles of humanityand impartiality. We musthelp those most in need.

Field report: The state ofColono has used genetictherapy and othertechnology to extendhuman life. Many people

remain active for morethan 150 years. But amysterious disease isclaiming thousands oflives. The state refusesinternational help andsays the Movement canonly help those aged 100

years or less or whose biometric pro le indicatesmore than 40 years of lifeahead of them.

2 652065 H um ani ta r ian ac t ionHumanitarian action

As the Movement marks the 50th anniversary of the Fundamental Principles this year, this illustrated series by Paris-based artist Pat Masioni imagines some of the issues that m

But science allows us to be even more

impartial and more humane. Biometricdata tell us who will survive. So in theend, we help more people…


17/32

Meanwhile, reports are coming in that thousands areeeing the ghting in Solano and going into the ‘dead

zone , an area contaminated by biological agents duringan attack on the former city of Tagalan.

25 years earlier, the rst robot humanitarians weredeployed along with about 100 humanitarian workers inprotective gear following an attack on a nuclear powerstation. Before the attack, people had used to robots asslaves. Technical failures plagued the operation and manywho encountered the robot-humanitarians felt insulted.Many robots were destroyed.

The robots we have today a re different.Hank, Version 10.0, for example, is neutraland impartial. He can assess situationsdispassionately, offer immediate medical analysisand support, and speak and listen to people inmany languages… We have 50 of them ready.

I have a solution. It s time to deploy Hank. I wasn t there. ButI ve spent the last 25

years working to xthose glitches.Hank, the robot? I m not so sure.Youre too young to remember 2039.

Yeah, but humanitycan t be programmed

into a machine!

No, but these robots canalso be operated by remote-

control, with a humanoperator making all the

decisions, remotely…I don t like it. Part of beinghumanitarian means beingclose to the people in need.

We ve forgotten that…

This isn t a time fornostalgia. This is atime to save lives.

And so a troupe of humanitarian robots, Hank version 10.0, march off into the dead zone.Their mission: to convince people to return to safety. Will they accomplish their mission?

If we can set up shelters just outside the hotzone, maybe we can get them to come back.

But how? Communications are down andwe don t have enough bio-protection

suits to make a meaningful intervention.

They have to be warned!



18/32


How communities in the Philippines

are helping to rede ne that ubiquitoushumanitarian buzzword ‘resilience’ throughcooperation and concrete action as they copewith successive natural disasters.

ESTHER VIERON, 63, lives in a close-knit shingcommunity on an isolated part of the WestSamar coast in the Philippines, surrounded bymangroves that provide shelter for sh and shingboats alike.

Despite the community’s entrenched poverty,Vieron remembers a time when even poor peoplecould ‘bounce back’ from a disaster more easily.

“When I was young there was an abundance offood, but climate change and loss of land to con-struction is making our day-to-day struggle harder,”she says, adding that these days, with more andmore ferocious storms and a growing population,it’s getting harder to star t over.

“The storm of 1969 was a bad one, it took many

lives,” says Vieron, who retired from local politicssome time ago, but remains a highly committed andrespected Philippine Red Cross community volun-teer. “Even so, typhoon Haiyan was the eye-opener

for us and Ruby [Hagupit] really scared us because ofthe constant heavy rain and wind.

“After Typhoon Haiyan, people have been listen-ing to what we tell them,” she says. “I tell them thatif we work together we can become more resilient.”

De ning and demonstrating resilienceBut what does it mean to be resilient in a countrythat experiences an average of 20 major tropicalstorms a year? In international humanitarian circles,the term ‘resilience’ has become a favoured buz-zword among donors, humanitarian organizationsand development agencies seeking to nd betterand more proactive ways to reduce the sufferingand losses caused by disasters and crisis.

Generally, resilience refers to the ability of peopleor things to absorb shocks, to be exible and able toadapt to changing circumstances. In the Philippines,the word for resilience translates literally as ‘bounceback’, a term that is often used after natural disasters.

Since Typhoon Haiyan in 2013, the most power-ful storm ever to make landfall, and several otherpowerful typhoons in 2014, the local de nition ofresilience has evolved. When speaking of buildingor enhancing resilience, the Philippine de nition

now might also include something like this: multiplelevels of society working together (on weather mon-itoring, storm-warning, evacuation plans, betterhome building, economic initiatives and community

L After natural disaster strikes,it is often the resilience oflocal communities, whichshoulder the greatest burdenin rebuilding their homes, livesand livelihoods, that makes thegreatest difference. As part ofa global Movement initiativecalled the One Billion Coalitionfor Resilience, the Red CrossRed Crescent Movement hascalled on all stakeholders “toengage and support” efforts tostrengthen community resiliencein concrete and systematic ways.Photo: Rommel Cabrera/IFRC

Bouncingback


19/32


pre-emptive evacuations seriously. They stock upwith food and they know how to secure their prop-erty and livestock well before the storm arrives.

Haiyan was also a hard lesson for emergencyresponders. The Philippine Red Cross is used to op-erating in many locations and responding to naturaldisasters, but coming as it did straight after a major

earthquake (Bohol), Haiyan tested the organization’scapacity to the limit and prompted a rethink aboutfuture responses.

Eric Salve, head of disaster management servicesat the Philippine Red Cross, says Haiyan was a wake-up call for the Philippine Red Cross to redouble itscommunity volunteer recruitment efforts. In manyof the worst-hit areas, staff and regular volunteerswere either affected themselves or cut off and un-able to help.

Another factor that has made a difference post-Haiyan is stronger leadership at the provincial andmunicipal levels. Local governments in some of thecoastal provinces have managed to contain injuryand loss of life through preparation and evacuationmeasures.

With Haiyan, the resultant storm surge tookthousands of lives because people thought thesurge would be similar to past storms. In typhoonsHagupit and Seniang, both of which hit the Philip-pines in December 2014, loss of life was generallylimited to cases in which people ventured out andput their lives at risk.

In the case of Hagupit, early action also playeda role. As soon as the country’s lead weatherforecasting agency (PAGASA) spotted the stormforming and heading for land, the governmentswung into action. Storm warnings were issuedand well over 1 million people were pre-emptivelyevacuated. Even though Hagupit destroyed housesand infrastructure, the human cost was far less.Offi cially, only 18 people died compared with Hai-yan’s death toll of 6,300.

awareness, among other things) to strengthen peo-ple’s ability to cope with severe shocks.

Following Haiyan, the Philippines governmentcalled for a ‘whole-society’ approach in whichpeople and agencies at all levels and in all sectorsbecome involved. The Philippine Red Cross, withsupport from its in-country Movement partners, is

following a similar tack, forging relationships withcommunities by liaising with local leaders and re-cruiting, training and equipping volunteers to workwith their local recovery committees. This usuallyinvolves disaster preparedness training, health ini-tiatives and constructing safer shelters.

The challenge for the National Society and thecountry as a whole is how to strengthen risk-reduc-tion efforts and make them more consistent in allcorners of this geographically and culturally diversenation. With its network of 100 chapters and thou-sands of community volunteers, the Philippine RedCross is already playing a key role.

A working de nitionBut what does ‘building resilience’ look like? An il-lustrated dictionary might include, along with itsde nition, a picture of Philippine Red Cross vol-unteer Lenita Macavinta-Diego making her dailyrounds in Aliputos, a coastal village on Panay Islandin Aklan province.

Trained by the Philippine Red Cross to conductemergency drills, simulations and rst-aid train-

ing, and to identify safe evacuation centres, such ascommunity halls and two-storey houses, she makessure that food and medical supplies are stockpiledfor emergencies and that the most vulnerable com-munity members are evacuated rst. During Haiyan,the volunteers’ actions in Aliputos meant there wereno casualties even though all 570 houses were dam-aged or destroyed.

That typhoon, which made landfall in the Phil-ippines in November 2013, dramatically changedperceptions of how to prepare for and respondto storms. Before Typhoon Haiyan, many peoplethought little of sitting out a typhoon in their ownhome and people were often reluctant to evacuatefor fear of losing their belongings to looters.

More than a year later, attitudes have changedmarkedly, say Red Cross volunteers. Even peoplewho in the past refused to evacuate heeded localauthorities and sought shelter in designated evacu-ation centres, usually schools or community hallson higher ground, when alerted about TyphoonHagupit in December 2014.

Life after HaiyanIn that sense, the Philippine Red Cross’s outreach taskhas been made a lot easier. Now people pay moreattention to the news and offi cial warnings and take

K After Typhoon Haiyan in2013, many coastal villagessuch as this one were tornapart by high-force winds andrising sea waters. Rebuildingcommunities to withstand thestorms and developing warningand evacuation systems are partof making communities moreresilient to disaster.Photo: Rommel Cabrera/IFRC

“It is time for theworld to embed resilience… intothe industrialization process and the

development oftowns and cities,accounting forfactors like seismicthreats, ood plains, coastalerosion andenvironmental

degradation.” Margareta Wahlström,United Nations SecretaryGeneral’s Special Representativefor Disaster Risk Reduction, in arecent article entitledThe yearof resilience.


20/32


Community buy-inBut at the community level, disaster risk reductionefforts are still fragile. A lot depends on the calibre ofleadership and the willingness of people to partici-pate in exercises like community evacuation drills,clean-ups and initiatives aimed at improving health.

“Haiyan taught us a lot, such as more effectivepreparation,” Salve says, “but Hagupit remindedus that we still need to fast-track and prioritize re-cruitment of community volunteers. We need toremember that during a typhoon, everyone is vul-nerable and our messages need to get through tothe whole community.”

One central theme behind all these efforts is thatresilience is not something that can be delivered like aproject or a programme. For a community to be trulyresilient, changes must be fostered in such a way thatthey can continued without outside support. Theyrequire community buy-in and investment.

This kind of thinking is not new. For many years,the Movement and other humanitarian actors havesought to bring lasting improvement to people’slives by enhancing local health systems, improvingthe health of livestock or helping people start smallenterprises. Today, however, such efforts are grow-ing in scale, tend to come earlier in the wake of crisesand are more often championed under the bannerof ‘resilience’.

Even from the onset, humanitarian relief often in-cludes cash-grants or cash cards that allow victimsof crisis to make their own decisions (with some re-strictions) about what they need most. In theory, thisform of assistance can boost the resilience of localmarkets and bring about recovery more quickly.

Since Haiyan, for example, almost 30,000 house-holds have received cash grants enabling them to

earn a living again as part of the Philippine RedCross’s three-year US$ 360-million recovery plan in-volving some 500,000 people. Initial data show thatfarming, rearing livestock and setting up local con-

venience shops are the top three income-generatorsfor those who have received such support.

This can also be the case during con ict. In additionto emergency assistance, the ICRC, which has longbeen present in the Philippines due to the ongoingcon ict, increasingly includes cash grants, cash cards,provision of tools or machinery, training and micro-

loans as part of a package to help communities attendmore quickly and effectively to their own needs.After ghting broke out in Zamboanga City be-

tween a faction of the Moro National LiberationFront and government forces in 2014, some 40,000people fled their homes. Most of these peoplefound shelter in tents, improvised wood and tarpau-lin structures or bunkhouses along the Cawa-Cawashoreline, or in a local football stadium.

In addition to emergency relief efforts, the ICRCand Philippine Red Cross offered nancial supportto the neediest in exchange for work (for example,garbage collection in the stadium and along theshoreline) or help with restarting small businesses.

In remote areas of Mindanao and the Visayas, localcommunities were able to identify their own needsand priorities. “Communities often rely on farmingfor survival, so we work with them to implementsustainable projects and improve crop yields,” saysAlan Colja, the ICRC’s economic security coordinatorin the Philippines.

One conflict-stricken community recently de-cided that it wanted to boost incomes by expanding

its cut- ower business, so the ICRC helped it set upa small nursery and provided advice on increasingproduction. The ICRC trained 560 people in carpen-try so they can help rebuild more storm-resistanthomes and storm shelters.

2015: the year of resilience? To some degree, resilience could be considered are-branding or consolidation of earlier buzzwords— ‘sustainability’, ‘preparedness’, ‘emergency plan-ning’, ‘risk-reduction’ and ‘economic security’ — ina way that satis es humanitarian organizations anddevelopment agencies. The beauty of the term is thatits inclusiveness allows for buy-in from people withdiverse interests. The downside is that resilience canmean almost anything — another catchy slogan usedopportunistically for almost any agenda.

For its part, the IFRC has long made the case todevelopment and humanitarian donors that disasterpreparedness and risk-reduction efforts in disaster-prone areas are absolutely essential to meetingpost-2015 Millennium Development Goals.

Now at the global level, momentum is gathering

around this concept as more organizations and high-level players align and push for greater investmentin risk prevention, and by extension, promotion ofmore resilient communities as a way of reducing

I In the wake of successivetyphoons, the Philippine RedCross and Movement partnershave supported programmesthat help local people get backinto business — as shermen,farmers, builders and manyother professions.Photo: Rommel Cabrera/IFRC


21/32

ference, where they called for greater action towardsbuilding community resilience. The way to do that,they argued, is by ensuring sustainable access towater and sanitation, investing in public awarenessand education, supporting effective disaster-prepar-edness systems, and developing stronger buildingcodes and other laws to reduce risks and ensure

swift response during crisis, among other actions. They also called attention to the recently launched‘One Billion Coalition for Resilience’, an initiative toscale up community and civic action on resilienceover the next ten years, “so that it is owned, led andcarried out by people themselves to bring aboutlasting change in their communities”, according toIFRC President Tadateru Konoé. The coalition’s goalis to engage at least one person in every householdaround the world in active steps towards enhancingcommunity resilience.

Given the global and local reach of the Red Crossand Red Crescent volunteer network, National So-cieties are at the heart of this grass-roots resiliencerevolution. For those looking for a working model,the Philippines may offer a case in point if the‘whole-society’ approach proves to be effective overtime and the concrete resilience actions promotedby the Philippine Red Cross and others become trulyembedded in local communities throughout this di-verse, island nation.

ByKate Marshall

Kate Marshall is an IFRC communications specialist based in Manila.

government expenditures over the longer term.In an article published to coincide with the tenth

anniversary of the Hyogo Framework for Action(HFA), a risk-management plan adopted by theUnited Nations a decade ago following the dev-astating 2004 Indian Ocean tsunami, MargaretaWahlström, the United Nations Secretary General’s

Special representative for Disaster Risk Reduction,calls for resilience “to be the hallmark of 2015.” Shemakes a case for participating governments to re-vise the HFA to take account of climate change,urban sprawl and rapid population growth.

“It is time for the world to embed resilience…into the industrialization process and the develop-ment of towns and cities, accounting for factors likeseismic threats, ood plains, coastal erosion and en-vironmental degradation,” she writes.

In March, when the third international confer-ence on disaster risk reduction convened in Sendai,Japan, one goal was to update the HFA.

After 30 hours of negotiations, consensus was -nally reached on the Sendai Framework for DisasterRisk Reduction, which lays out a 15-year strategy and“opens a new chapter in sustainable developmentas it outlines clear targets and priorities for action,which will lead to a substantial reduction of disasterrisk,” according to Wahlström.

1 billion strongRepresentatives of 42 National Red Cross and Red

Crescent Societies and the IFRC took part in the con-


“After TyphoonHaiyan, people havebeen listening towhat we tell them. Itell them that if we

work together wecan become more resilient.” Esther Vieron, 63, PhilippineRed Cross volunteer

K Some of the workers at this joint Philippine Red Cross andIFRC shelter construction projectin Tabontabon will move intothe shelters they are working on.Most bene ciaries are expectedto contribute labour to build theirhouse if they are able. This kindof ‘sweat equity’ contributionalso fosters a sense of localownership, an important part ofany resilience-building effort.Photo: IFRC


22/32


S ITTING ON THE EDGE of his single bed, one ofonly two pieces of furniture in his drab, run-down room, a 38-year-old Syrian man namedSamir* speaks about how he ended up in Nicosia,Cyprus’s capital city.

“I was living in Damascus with my wife and mydaughter,” he says. “I went to get some food for my

family and when I was away, our apartment buildingwas bombed. My wife and my daughter were killed.”Fearing for his life, Samir says he left Damascus, lived

in a refugee camp for several months before makinghis way towards Cyprus. Samir was lucky. He escapedthe horrors of war. But like many migrants, he is nowliving another sort of nightmare — a legal limbo thatforces him to live in the shadows of society, searchingfor work while trying to avoid the police.

Migrants from Syria who arrive in Cyprus qualifyfor ‘subsidiary protection’, a status that preventsthem from being sent back to their native country.But it doesn’t protect them from being detained bypolice for entering and living in Cyprus illegally.

Samir has already spent four months in detention,rst in Nicosia’s central prison and then later at the

Menogia detention centre for immigrants near thesouth-eastern city of Larnaca. “I am worried aboutbeing sent back,” he says.

As an undocumented migrant, Samir doesn’tqualify for government financial assistance andbecause he left Syria quickly, without papers, hecannot prove his identity to authorities or agencies

that might help him attain refugee status or asylum.

Hard times,new energyA crossroads between continents in theeastern Mediterranean, Cyprus is coping withincreasing migration in the midst of nancialcrisis. One of the Movement’s newestNational Societies responds.I In September 2014, morethan 350 refugees from the Syriancon ict were rescued from this

shing boat.AFP Photo/HO /Cyprus Defence Ministry

I They were brought by cruiseship to the Port of Limassol on theisland of Cyprus.AFP Photo/Andew Caballero-Reynolds


23/32


In the meantime, nding day labour is no easy task.A painter by trade, Samir nds himself in a countrysuffering from the aftermath of a nationwide bank-ing crisis that culminated in late 2012 and which hasbrought the economy to a near complete standstill.Many Cypriots lost their businesses, homes, retire-ment pensions and savings, while many others can

only withdraw small daily sums of money due to apolicy aimed at preventing a run on the banks.While economists and politicians see signs of

a comeback (following a 10 billion euro bailout in2013), many average Cypriots see little sign of im-provement. Last year, unemployment reached 18per cent for people aged 25 and over, and close to45 per cent for people under 25.

Meanwhile, personal, home and business loanshave all but dried up. Everyone has been hit, butmigrants and the elderly (many of whom lost theirretirement pensions) are particularly vulnerable.

“We see these cases every day, elderly peoplewho are stuck in their beds at home begging forhelp,” says Leas Kontos, a volunteer with the Nicosiabranch of the Cyprus Red Cross Society, who spendsmost days making house calls, delivering food pack-ages or medicine to the elderly, single mothers orothers who cannot come to the branch headquar-ters during food distributions.

Kontos also sees many migrants during hisrounds. Most are from eastern European and Cen-tral Asian states, but others have come from as far

away as Cameroon and Sri Lanka. More and moreare coming from Syria.

“People are coming to Cyprus because they thinkthere is work here or because they think it’s an entryinto the European Union,” says Giorgio Frantzis, a

eld offi cer at the Nicosia branch, where migrantscan get food, basic household supplies, clothing, in-formation and referrals to help them survive in theirnew home. “They’ve heard that Cyprus is a prosper-ous place. Which it was until recently.”

New stories, new challengesIn the midst of all this, the Cyprus Red Cross Societyitself is going through a metamorphosis of sorts, atransformation brought on by the economic crisis,the in ux of migrants and the new opportunitiesposed by the National Society’s admission into theIFRC at its General Assembly in November 2013.

Today, the National Society is shouldering a newand growing set of responsibilities in a countrywith few remaining nationwide civil society organi-zations. But the crisis has also forced it to halt itslong-standing support for international operations

in the Philippines and Sri Lanka.“We were doing many projects abroad because we

could afford it and because there were no great needslocally,” says Takis Neophytou, director general of the

Cyprus Red Cross. “Now, we concentrate on localneeds,” he adds, noting that some of the National So-ciety’s own resources were lost or frozen due to thebanking crisis. “Donations from individual donorsoverall are much less, while needs have increased.”

One important response has been a campaign,launched with the support of three major corpo-rations, to secure money for a school breakfastprogramme and other local relief efforts. This cam-paign, and other fund-raising efforts, has allowedthe National Society to nearly double its delivery offood parcels.

New energy The crisis has also brought on a new sense of urgencyand energy to a National Society whose domesticoperations, up until two years ago, had been fairlyroutine, says Niki Hadjitsangari, the president of theLimassol branch on the island’s southern coast.

“We were a small, fairly typical and traditional Eu-ropean Red Cross,” she says. “We would do blooddrives, deliver blood to the hospitals, visit old peoplein nursing homes and take presents to underprivi-leged children at Christmas. We were helping poorpeople, but because Cyprus was a very prosperouscountry, there were not so many needs.”

Now the branch distributes food, cloth-ing and supplies on an ongoing basis andis struggling to nd ways to expand the cramped,overpacked areas where it stores and prepares foodpackages. The branch’s lobby, about the size of anaverage elevator, is being expanded to accommo-date the growing number of migrants who arriveseeking assistance, information and referrals. “Weare operating in emergency mode,” says branchtreasurer Annie Haraki.

Emergency modeIn September, the branch faced one of its biggestrecent emergencies when it mobilized to assist 345

L Already active in helpingrefugees and migrants, the Cyprus

Red Cross Society responded byboth advocating for the protectionof the refugees and offering directassistance at a temporary camp setup for the refugees.Photo: Cyprus Red Cross Society


24/32


Syrian and Palestinian migrants who arrived at theport of Limassol after having been rescued at seaduring stormy weather by a passenger ship. Beforethey arrived, Red Cross staff in Nicosia called in addi-tional volunteers who worked in three-day shifts toset up tents and established a distribution centre ata pre-existing, government-run camp for migrants

nearby.Cyprus Red Cross volunteers then provided mi-grants with basics necessities (clothes, shoes, hygienickits, personal care items, toys for the children) as wellas rst aid, psychosocial support and help connect-ing with family back home or elsewhere. In followingweeks, the National Society organized activities to im-prove the migrants’ quality of life, including schoolingfor the children, English language lessons for adultsand limited legal advice and referrals.

When authorities stopped offering any services atthe camp in January, roughly 100 migrants stayedon and volunteers continued to offer services, medi-cine and supplies to those who remained. A CyprusRed Cross volunteer doctor made regular visits andthe National Society offered transport to two localhospitals, which agreed to accept patients from thecamp. Staff and volunteers also provided informa-tion aimed at protecting migrants from smugglersand others who might take advantage of their vul-nerable situation.

The episode was a test of the National Society’scapacity to respond to an acute emergency as wellas its role as a neutral and independent humani-tarian organization. This was particularly true, saysNeophytou, when government agencies asked theNational Society to advance particular policies re-garding the migrants’ legal status that might not be

in the migrants’ best interests.“Unacceptable demands by the public authorities,deriving from accidental or intentional conceptionor misinterpretation of our auxiliary role, must neveroverpower the Fundamental Principles of the Move-ment,” he says.

Insecure timesIndeed, charting a new course to increase assistancefor vulnerable migrants is not easy during hard eco-nomic times. “With the economic crisis, people feelinsecure,” says Andri Agrotis, a lawyer and volunteerwho serves as secretary in the Nicosia branch andhelps run the branch’s services for migrants. “Somepeople feel that if you have more foreigners in thecountry that means the country will never recoverbecause we need to maintain these new people.”

The National Society has responded by sayingit will endeavour to protect and support migrants,promote wider understanding of their rights andtheir need for social inclusion, as well as offer ser-

“We see these casesevery day, elderly people who are stuck in their beds at homebegging for help.”Leas Kontos, a volunteer withthe Nicosia branch of the CyprusRed Cross Society

K A banking crisis that hit Cyprusin 2012 continues to cause

considerable hardship for averageCypriots. At the beginning of thecrisis, people’s ability to withdrawmoney was greatly restrictedand lines at banks were long.The crisis caused the Cyprus RedCross to downscale internationaloperations and focus more on theneeds of local residents, as well asmigrants and refugees.Photo: REUTERS/Bogdan Cristel


25/32


vices (such as family tracing) at three government‘reception centres for asylum seekers’ in Ko nou,Larnaca and Paphos.

“We feel that we have to follow the FundamentalPrinciples and that we are doing whatever we can

within our resources and capabilities as a small Na-tional Society,” says Agrotis, who also represents theCyprus Red Cross on the Platform for European RedCross Cooperation on Refugees, Asylum Seekers andMigrants (PERCO).

Part of that responsibility, says Fotini Papado-poulou, president of the Cyprus Red Cross, is to be avoice for vulnerable people and to speak out againstxenophobia, racism and attitudes that lead to exclu-sionary policies and social marginalization.

Now that the Movement has fully accepted it intoits fold, she says the Cyprus Red Cross can play aneven greater, and more effective, role on the local,European and global stages by participating inMovement decision-making and by bene ting fromother forms of Movement support.

Remaining relevantA key part of that process will be young people,many of whom are now facing a future in which halfof them will not be able to nd jobs on the island.

“Unemployment is the number-one issue in Cy-prus,” says Vanessa Kyprianou, the president of the

Cyprus Red Cross youth section, adding that volun-teering is still a big part of the young Cypriot spirit. “Butit’s often a challenge to ask people to volunteer whenwhat they need is a job to help put food on the table.”

Despite this, many young people have mobilized tohelp fellow Cypriots and migrants, she says. And likeyouth anywhere, many are passionate about globalissues, such as reducing the effects of climate change,as well as gender equality and youth empowerment.

“So we really need to come up with new pro-grammes that will challenge the youth, not just askthem to do what the older generation has beendoing,” she says, adding that the Cyprus Red Cross istaking steps in the right direction: the youth sectionhas equal status to the branches, meaning it reportsto the executive committee, has a voice in strategicdecisions and has fund-raising responsibilities.

Some of the more innovative — and fun — re-sponses to the crisis, most notably rock concertfund-raisers, were organized by young volunteers.Still, there is a gap in the National Society’s humanresources. Most staff and leadership are 50 yearsold, or older. Many of the National Society’s oldergeneration, including Papadopoulou, say it must domore to bring up a new generation of managementand leadership.

“Cyprus was a paradise some years ago,” says Pa-padopoulou. “I think Cyprus can be a paradise againand I think the youth will be a big part of makingthat future. But it will only happen if we work veryhard and if we help each other, help everyone, to getthrough this crisis.”

By Malcolm LucardMalcolm Lucard is editor ofRed Cross Red Crescent magazine.*Not his real name

L Cyprus Red Cross volunteer LeasKontos makes daily deliveries topeople in Nicosia who have beenhit hard by the 2012 nancialcrisis. Many of those he visitsare elderly, unemployed or who

have jobs that do not cover theirexpenses and debts.Photo: Malcolm Lucard/IFRC

“Unacceptabledemands by the public

authorities, derivingfrom accidental or intentional conceptionor misinterpretationof our auxiliary role, must never overpowerthe FundamentalPrinciples of the

Movement.” Takis Neophytou, directorgeneral of the Cyprus Red CrossSociety


26/32


THE MAN ESCORTING PATRICIO BUSTOS fum-bles with his keys. Bustos doesn’t complain.After all, he has waited a long time for this.What’s a few more seconds? The heavy, steel doorswings open at last and Bustos steps into a cementcourtyard the size of a tennis court, surrounded onthree sides by a blue, one-storey building.

“Yes, I remember,” he says quietly.Bustos is Chile’s national coroner, the man ulti-mately responsible for nding answers when thegovernment needs to know how, why or whensomeone died — or to nd answers about who hasdied in cases where the remains cannot be easilyidenti ed. One of his biggest cases, which he ishandling with assistance from the ICRC, involves

nding answers about those who were murderedor executed, or who simply disappeared, duringChile’s years of military regime, which lasted from1973 to 1990.

On this day, nearly 40 years later, 64-year-old Bus-tos is making a personal journey, a return to a painfulpart of his past.

The last time Bustos saw this courtyard was in1976, under very different circumstances. Then ayoung doctor with Marxist sympathies, he had beenarrested for actively resisting Chile’s military regime. The facility, known as Cuatro Alamos, was a deten-tion centre in Santiago run by Chile’s secret police.Only the secret police knew he was there.

Returning to the corridors for the rst time since

his release in 1976, Bustos walks up and down a nar-row hallway, searching his memory. Then he stopsin front of a door, above which is painted number2. “This was my cell,” he says, standing on his toesto peer through the square spaces above the door.

Bustos strides to the far end of the hallway, turnsleft and enters a room with white ceramic tiles andsix shower heads. “This is where they beat the pris-oners,” he says matter-of-factly. “This is where I wasbeaten.”

He lingers for only a minute. There is anotherplace he wants to visit, a rectangular room with ironbars over the windows that served as Cuatro Ala-mos’ communal area. While held captive, Bustos hadbeen summoned there one day to meet three menbearing red and white badges.

That meeting, and other similar private talkswith these men in subsequent months, are almostcertainly what kept him from disappearing. “Thisis where I met the ICRC offi cials,” he says, standingin the middle of the room, a slight echo from theconcrete accentuating his voice’s otherwise at, un-assuming tone. “This is where I met them.”

Los DesaparecidosBustos arrived at Cuatro Alamos more than twoyears after the events of 11 September 1973, when

tanks rolled and the air force bombed the presiden-tial palace. President Salvador Allende and dozensof his supporters died that day. General Augusto Pi-nochet went on television that night to announcethat the military had seized power in the name ofprotecting the fatherland.

The arrests began immediately and continued un-abated. In just one episode on 12 October, soldiersarrested 26 leftist sympathizers in the city of Calamaand held them in a prison, incommunicado. Eightdays later, authorities released a statement: all of themen had been shot dead the previous day while at-tempting to escape after a truck transporting themto another prison suffered a mechanical failure. Nofurther details were provided. Nor were the bodies.

So many bodies didn’t turn up throughout Chilethat a phrase was coined to describe them. Theybecame known as Los Desaparecidos (the disap-peared).

For years, families of those who had disappearedin Calama and 15 other cities across the country inless than a month sought more information. AfterChile returned to democracy in 1990, they nally got

some answers. The military had tortured and thenexecuted 96 people, including the 26 in Calama, aspart of an infamous campaign that became knownas the ‘caravan of death’.

Patricio Bustos says visits from ICRCdelegates when he was imprisoned in the

1970s likely saved his life. Now, as head ofChile’s forensic services agency, he works,with help from the ICRC, to solve one ofthe country’s greatest mysteries: whathappened to those who disappeared duringthe country’s decades of military regime?

Cases oidentity

“It’s a humanitarian gesture, somethingthe country hasto do, somethingthe [Legal Medical Service] has to do,to provide justice.It’s important to remember that weas a society still have debts to pay.” Patricio Bustos, head of Chile’sLegal Medical Service


27/32


But what about the remains? Where were they?One of the 96 was Luis Alfonso Moreno, a 30-year-

old security guard and Socialist Party activist.Investigators called his family in January 2014. Theyhad found fragments of his body in the desert andconclusively identi ed them.

The family held a ceremony for Moreno at thegeneral cemetery in Santiago, with his bones in anurn draped by the Chilean ag. Beside the urn wasa black-and-white photograph of his wedding dayin 1969.

Mourners told stories that prompted laughter andtears. Someone played a guitar and they sang his fa-vourite songs. This produced more remembrances.Moreno was buried in a gravesite that held the re-mains of other Pinochet regime victims.

“We had lost hope,” says Luis Alfonso Moreno Jr,who was 3 years old when his father disappeared.“We thought impunity would rule. Now he’s with hiscomrades.”

Mistaken identitiesMoreno’s identi cation was performed by the Legal

Medical Service (SML in Spanish), Chile’s nationalcoroner ’s offi ce, the agency Patricio Bustos nowheads. The SML is gaining a reputation as an agencythat can serve as a model to similar agencies dur-

ing or after both con ict and natural disasters. Butit wasn’t always that way.

Only a few years earlier, before Bustos became di-rector, the SML had misidenti ed dozens of peoplewho had disappeared after Pinochet and the militarytook power. The episode is remembered as ‘Patio29’, a reference to an area in the general cemeterywhere the victims were buried. Between 1994 and2002, the SML claimed to have identi ed 98 bodiesfrom Patio 29 and delivered the remains to the fami-lies for proper burial. But in dozens of cases, the SMLlater said that the identi cations were mistaken.

Relatives of the 1,200 victims whose remains hadnot been positively identi ed were especially out-raged. “We lost con dence in the SML,” says AliciaLira, who heads a group that represents relatives ofpeople executed by the military regime and whoseremains have still not been found.

When the SML’s director at the time resigned,Bustos, who held a senior post in the health minis-try, applied for and got the job. Bustos immediatelymade changes. On his second day, he met withseveral relatives of Los Desaparecidos and told

them that he would establish stricter rules to endmisidenti cations, be accessible to them and en-sure that his agency treated the families in a morehumanitarian way.

L Now Chile’s top coroner,Patricio Bustos sits in the cellwhere he was once detainedduring Chile’s military regimein the 1970s. Not far from thiscell, Bustos was visited bythree ICRC delegates who hesays helped prevent him frommeeting the fate of many of hisfellow prisoners: execution ordisappearance.Photo: Hector Gonzalez de Cunco/IFRC


28/32


Answers in blood The effort to rebuild the families’ trust continuedin 2007, when the Chilean government created aDNA-sampling centre that enabled forensic scien-tists to match DNA from found bones with the livingrelatives of the disappeared. The agency also signedagreements with foreign accredited, genetic-analy-

sis laboratories and began working more closelywith the ICRC, which has signi cant expertise in theidenti cation of human remains.

Two years later, the SML launched its rst publiccampaign inviting family members of the disap-peared to donate blood to see if their DNA matchedunidenti ed remains that had already been found orthat might be discovered. The SML collected morethan 3,500 samples.

Collecting blood is a simple task. But for manyfamily members, the process awakens painful mem-ories. “When a family member gives a sample, they

inevitably get emotional, because they feel there isthe possibility of nding your loved one some day,”says Lorena Pizarro, representative of the Families ofDisappeared Detainees Association.

Last year, the SML went a step further with anew programme, called ‘A drop of your blood fortruth and justice’, which aimed to reach out be-

yond relatives of Los Desaparecidos to others whothink their family may also have been a victim ofthe regime.

Since 2007, the SML has de nitively identi ed 138remains — meaning 138 families now have a placeto visit their loved

Red Cross Red Crescent Magazine: Matters of Principle

Documents

Transcript of Red Cross Red Crescent Magazine: Matters of Principle