4) Global Cooperation
Responsiblities in International Cooperation
Responsibilities in international cooperation
The most important policy document defining the roles and responsibilities of Movement actors in development is the Red Cross and Red Crescent Development Cooperation Policy adopted by the General Assembly in 1997. It highlights the following principles for organising mid- to long-term development cooperation:
· Spirit of partnership.
· Mutual support and respect.
· Opportunities for regional cooperation.
· Positive, independent relations with governments.
It stresses that National Societies should provide their international assistance through the respective National Society of each country. According to this policy, National Societies working internationally accept that the International Federation or, on occasion, another National Society has the coordinating role.
The 1997 policy further outlines the form International Federation assistance to National Societies can take, including:
· Organizational capacity/needs assessment.
· Drawing up a strategic development plan.
· Programme proposals and resource mobilisation.
· Regional programmes.
· Advising on external support.
· Technical support in defined areas.
· Promoting regional cooperation.
· Organising partnership meetings
This cooperation policy is complemented by the 1997 Seville Agreement, which devotes a full chapter to the strengthening of National Societies and the roles and responsibilities of each component of the Movement. It states that all components of the Movement shall strive to assist each other to realise their full potential and adopt a policy of constructive complementarily in elaborating a comprehensive development approach.
Main responsibilities
National Society
A National Society is primarily responsible for its own organizational development and the implementation/delivery of relevant services and programmes.
Partner National Society
Partner National Societies contribute to the development of other National Societies requiring such assistance as far as their resources allow. This support can be provided by means of bilateral or multilateral development agreements. Apart from providing financial support, partner National Societies can advocate more specifically for organizational development and change, as well as provide technical (facilitation) support and tools.
The International Federation
The International Federation, through its secretariat and field offices, has the lead role in supporting National Society organizational development and capacity-building action. The International Federation also has the lead role in coordinating international development assistance to National Societies. The International Federation offers technical support to both context-specific and tailor-made OD processes that follow the approach outlined in this framework. The tailor-made support can be given by using different resources, including national and international advisors, peer support from sister National Societies and delegates.
The role of International Federation OD delegates is evolving into one of demonstrated experience in leadership or senior positions. OD advisors assist a National Society identify needs, capacities, solutions and resources. International Federation staff are expected to contribute to building systems that connect needs and available resources, for example through regional exchange programmes and accessing expertise already available within a country or region.
The ICRC
The ICRC provides OD support to activities that fall within its statutory core competencies and contributes to the development of the National Societies in coordination with the International Federation. More specifically, the ICRC provides capacity-building support for its three traditional cooperation programmes, namely: reunification of families (tracing); promotion of international humanitarian law and the Fundamental Principles of the Movement; and conflict preparedness and response. The ICRC’s Capacity Building Work involves the following five elements:
· Creating ownership in the respective National Society for the three cooperation programmes.
· Putting in place (for the three cooperation programme areas) relevant organizational structures and work procedures.
· Developing the necessary competencies (needed for improved delivery in the three cooperation programmes).
· Creating a network of working relationships.
· Making working tools available for the three cooperation programmes.
Criteria for prioritising OD assistance
The International Federation’s criteria for prioritising OD support to National Societies is as follows, in order of importance:
Leadership
For a change process to be successful, the leadership and senior management of a National Society must demonstrate willingness and a clear commitment to initiate and to lead the OD process. In cases where this clearly does not exist, the International Federation monitors developments from the regional level and regularly assesses whether conditions for support are changing.
Vulnerability
The degree of vulnerability in a country has a direct bearing on the priority it receives. Consequently, National Societies in countries with high and recurring vulnerabilities are prioritised.
Capacity
Capable National Societies have relevant and quality programmes and services. National Societies are grouped into following priority categories:
§ Low capacity, high willingness to change
National Societies in this category receive top priority, especially in countries with high vulnerabilities. Support in these cases includes a focused in-country technical assistance for a limited period.
§ Medium capacities, high willingness to change
Similarly, National Societies in this category receive high priority. The difference to previous category is that assistance in this case will be less direct at the country level and is often facilitated from a regional level.
It should be noted that it is difficult if not impossible to measure “willingness to change” and “capacity to deliver” objectively. Trust, sound and informed judgement are the basis for this type of evaluation and decision-making. The International Federation's strategy is to make these judgements explicit and transparent, while another element of the strategy is to use peer reviews for this type of assessment.
Coordination and cooperation
International cooperation is at the core of the mandate of the International Federation of Red Cross and Red Crescent Societies. Prior to its formation in 1919, National Societies responded to the needs of people affected by war and disasters through flexible and informal forms of organization and management. With the creation of the International Federation in 1919 (then called the League), international cooperation of National Societies is formally organized and its coordination remains the primarily responsibility of the Secretariat of the International Federation.
Context
Until early 1990s, the predominant method of international cooperation was multilateral whereby National Societies worked through the international structures and systems of the Secretariat of the International Federation. Throughout this period, other methods such as bilateral were also practiced but such engagements occurred randomly in the form of pairing and twinings, remained localized, project-focused, generally involved small budgets and relied on the administrative systems of the International Federation.
By mid to late 1990s, the characteristics of international cooperation had drastically changed. More and more, National Societies opted for bilateral cooperation, even in large and complex disaster relief operations that involved multiple countries. Today, National Societies continue to choose to create a full operational presence, establish structures separate from or parallel to those of the international bodies, and negotiate the implementation of their strategic directions directly with donors and host National Societies.
Many factors contributed to this shift. The factors ranged from the need for public visibility, to donors (mainly governments) requiring a direct monitoring and implementation role for National Societies receiving governmental funding, to a general sense of dissatisfaction with a static and sometimes bureaucratic international structure.
It is also important to record another shift in practice of some National Societies. Since the 1990s, incidents of unilateral intervention in host countries have increased. Unilateralism is by definition void of cooperation or coordination. Unilateral interventions of any National Society in another country serve primarily the interests of one party rather than collective international interests. They happen without the prior agreement of the host National Society, they undermine the dignity of the host National Society, often forcing the latter to agree to projects and services that fall entirely outside of its scope and capacity building needs. Unilateralism is against the spirit of the Movement and diminishes the collective impact of global resources towards fulfilling the mission of the Movement. For this reason, unilateralism cannot be an integral part of a framework for functional international cooperation.
Systematic coordination
The Movement’s strategic objective 2 calls for a functional cooperation which gives precedence to systematic coordination over the different operational cultures and approaches of National Societies, the International Federation Secretariat and the ICRC.
Systematic coordination means to organize the different elements of international activities so as to enable them to work together effectively in accordance with a fixed plan or system. The two main methods are described below.
Multilateral method
Multilateral cooperation means that international response to a situation is coordinated and globally managed by the International Federation Secretariat.
This has been the most traditional method of cooperation within the Federation and is the most preferred model for complex and/or large operations that affect multiple countries.
Through this method, National Societies and external agencies contribute to the Red Cross and Red Crescent response to a situation with financial, material and human resources which are channeled through the Secretariat of the International Federation. While the Secretariat of the International Federation develops and manages the response framework, the National Society of each affected country remains the key co-player, co-planner and implementor along with those participating in the work under the auspices of the International Federation.
The benefits of this method of international cooperation are: First, there is seldom a case of internal duplication of efforts. Second, resources are matched with the most urgent needs. And lastly, the Federation has the opportunity to respond with a united front rather than a fragmented approach which results in wasting resources and not making the best possible difference in the lives of those in need.
Bilateral method
Bilateralism is understood differently by different organizations. The Secretariat of the International Federation defines bilateralism as an international activity negotiated by two National Societies based on their mutual interests and with the objective of providing a needed public service through an operation or a programme.
The bilateral method promotes the spirit of partnership between members, adheres to the mission of the Movement and takes into account all relevant international framework put forth by the International Federation. The bilateral method by definition mutually serves the interests of both partners and ensures that duplication is not taking place. The latter is achieved through ongoing dialogue and engagement of the Secretariat of the International Federation.
When properly designed and effectively communicated, the bilateral method has many beneficial characteristics. First, it is an effective way for sister National Societies to respond to each other’s small and medium scale needs. Second, it ensures that the human resources of National Societies have more ongoing direct experience in international knowledge sharing. Lastly, it is a practical way for internal outsourcing of the work of the International Federation which can result in effective management of global resources.
Cooperation agreement
The Secretariat of the International Federation is testing and promoting a mechanism for the coordination of cooperation agreements. This mechanism is referred to as CAS (cooperation agreement strategies). CAS is intended to be a cyclical process for managing cooperation within the Movement based on the goals of Strategy 2010 and Strategy for the Movement. The process calls for a collaborative approach to cooperation to ensure that the impact of international assistance is both maximized and lasting.
The collaborative approach necessitates joint planning and management of the flow of resource allocation. Through CAS, resources of the Movement can be targeted in coordination with external partners active in the humanitarian sector and promote the spirit of collective responsibility.
The most important policy document defining the roles and responsibilities of Movement actors in development is the Red Cross and Red Crescent Development Cooperation Policy adopted by the General Assembly in 1997. It highlights the following principles for organising mid- to long-term development cooperation:
· Spirit of partnership.
· Mutual support and respect.
· Opportunities for regional cooperation.
· Positive, independent relations with governments.
It stresses that National Societies should provide their international assistance through the respective National Society of each country. According to this policy, National Societies working internationally accept that the International Federation or, on occasion, another National Society has the coordinating role.
The 1997 policy further outlines the form International Federation assistance to National Societies can take, including:
· Organizational capacity/needs assessment.
· Drawing up a strategic development plan.
· Programme proposals and resource mobilisation.
· Regional programmes.
· Advising on external support.
· Technical support in defined areas.
· Promoting regional cooperation.
· Organising partnership meetings
This cooperation policy is complemented by the 1997 Seville Agreement, which devotes a full chapter to the strengthening of National Societies and the roles and responsibilities of each component of the Movement. It states that all components of the Movement shall strive to assist each other to realise their full potential and adopt a policy of constructive complementarily in elaborating a comprehensive development approach.
Main responsibilities
National Society
A National Society is primarily responsible for its own organizational development and the implementation/delivery of relevant services and programmes.
Partner National Society
Partner National Societies contribute to the development of other National Societies requiring such assistance as far as their resources allow. This support can be provided by means of bilateral or multilateral development agreements. Apart from providing financial support, partner National Societies can advocate more specifically for organizational development and change, as well as provide technical (facilitation) support and tools.
The International Federation
The International Federation, through its secretariat and field offices, has the lead role in supporting National Society organizational development and capacity-building action. The International Federation also has the lead role in coordinating international development assistance to National Societies. The International Federation offers technical support to both context-specific and tailor-made OD processes that follow the approach outlined in this framework. The tailor-made support can be given by using different resources, including national and international advisors, peer support from sister National Societies and delegates.
The role of International Federation OD delegates is evolving into one of demonstrated experience in leadership or senior positions. OD advisors assist a National Society identify needs, capacities, solutions and resources. International Federation staff are expected to contribute to building systems that connect needs and available resources, for example through regional exchange programmes and accessing expertise already available within a country or region.
The ICRC
The ICRC provides OD support to activities that fall within its statutory core competencies and contributes to the development of the National Societies in coordination with the International Federation. More specifically, the ICRC provides capacity-building support for its three traditional cooperation programmes, namely: reunification of families (tracing); promotion of international humanitarian law and the Fundamental Principles of the Movement; and conflict preparedness and response. The ICRC’s Capacity Building Work involves the following five elements:
· Creating ownership in the respective National Society for the three cooperation programmes.
· Putting in place (for the three cooperation programme areas) relevant organizational structures and work procedures.
· Developing the necessary competencies (needed for improved delivery in the three cooperation programmes).
· Creating a network of working relationships.
· Making working tools available for the three cooperation programmes.
Criteria for prioritising OD assistance
The International Federation’s criteria for prioritising OD support to National Societies is as follows, in order of importance:
Leadership
For a change process to be successful, the leadership and senior management of a National Society must demonstrate willingness and a clear commitment to initiate and to lead the OD process. In cases where this clearly does not exist, the International Federation monitors developments from the regional level and regularly assesses whether conditions for support are changing.
Vulnerability
The degree of vulnerability in a country has a direct bearing on the priority it receives. Consequently, National Societies in countries with high and recurring vulnerabilities are prioritised.
Capacity
Capable National Societies have relevant and quality programmes and services. National Societies are grouped into following priority categories:
§ Low capacity, high willingness to change
National Societies in this category receive top priority, especially in countries with high vulnerabilities. Support in these cases includes a focused in-country technical assistance for a limited period.
§ Medium capacities, high willingness to change
Similarly, National Societies in this category receive high priority. The difference to previous category is that assistance in this case will be less direct at the country level and is often facilitated from a regional level.
It should be noted that it is difficult if not impossible to measure “willingness to change” and “capacity to deliver” objectively. Trust, sound and informed judgement are the basis for this type of evaluation and decision-making. The International Federation's strategy is to make these judgements explicit and transparent, while another element of the strategy is to use peer reviews for this type of assessment.
Coordination and cooperation
International cooperation is at the core of the mandate of the International Federation of Red Cross and Red Crescent Societies. Prior to its formation in 1919, National Societies responded to the needs of people affected by war and disasters through flexible and informal forms of organization and management. With the creation of the International Federation in 1919 (then called the League), international cooperation of National Societies is formally organized and its coordination remains the primarily responsibility of the Secretariat of the International Federation.
Context
Until early 1990s, the predominant method of international cooperation was multilateral whereby National Societies worked through the international structures and systems of the Secretariat of the International Federation. Throughout this period, other methods such as bilateral were also practiced but such engagements occurred randomly in the form of pairing and twinings, remained localized, project-focused, generally involved small budgets and relied on the administrative systems of the International Federation.
By mid to late 1990s, the characteristics of international cooperation had drastically changed. More and more, National Societies opted for bilateral cooperation, even in large and complex disaster relief operations that involved multiple countries. Today, National Societies continue to choose to create a full operational presence, establish structures separate from or parallel to those of the international bodies, and negotiate the implementation of their strategic directions directly with donors and host National Societies.
Many factors contributed to this shift. The factors ranged from the need for public visibility, to donors (mainly governments) requiring a direct monitoring and implementation role for National Societies receiving governmental funding, to a general sense of dissatisfaction with a static and sometimes bureaucratic international structure.
It is also important to record another shift in practice of some National Societies. Since the 1990s, incidents of unilateral intervention in host countries have increased. Unilateralism is by definition void of cooperation or coordination. Unilateral interventions of any National Society in another country serve primarily the interests of one party rather than collective international interests. They happen without the prior agreement of the host National Society, they undermine the dignity of the host National Society, often forcing the latter to agree to projects and services that fall entirely outside of its scope and capacity building needs. Unilateralism is against the spirit of the Movement and diminishes the collective impact of global resources towards fulfilling the mission of the Movement. For this reason, unilateralism cannot be an integral part of a framework for functional international cooperation.
Systematic coordination
The Movement’s strategic objective 2 calls for a functional cooperation which gives precedence to systematic coordination over the different operational cultures and approaches of National Societies, the International Federation Secretariat and the ICRC.
Systematic coordination means to organize the different elements of international activities so as to enable them to work together effectively in accordance with a fixed plan or system. The two main methods are described below.
Multilateral method
Multilateral cooperation means that international response to a situation is coordinated and globally managed by the International Federation Secretariat.
This has been the most traditional method of cooperation within the Federation and is the most preferred model for complex and/or large operations that affect multiple countries.
Through this method, National Societies and external agencies contribute to the Red Cross and Red Crescent response to a situation with financial, material and human resources which are channeled through the Secretariat of the International Federation. While the Secretariat of the International Federation develops and manages the response framework, the National Society of each affected country remains the key co-player, co-planner and implementor along with those participating in the work under the auspices of the International Federation.
The benefits of this method of international cooperation are: First, there is seldom a case of internal duplication of efforts. Second, resources are matched with the most urgent needs. And lastly, the Federation has the opportunity to respond with a united front rather than a fragmented approach which results in wasting resources and not making the best possible difference in the lives of those in need.
Bilateral method
Bilateralism is understood differently by different organizations. The Secretariat of the International Federation defines bilateralism as an international activity negotiated by two National Societies based on their mutual interests and with the objective of providing a needed public service through an operation or a programme.
The bilateral method promotes the spirit of partnership between members, adheres to the mission of the Movement and takes into account all relevant international framework put forth by the International Federation. The bilateral method by definition mutually serves the interests of both partners and ensures that duplication is not taking place. The latter is achieved through ongoing dialogue and engagement of the Secretariat of the International Federation.
When properly designed and effectively communicated, the bilateral method has many beneficial characteristics. First, it is an effective way for sister National Societies to respond to each other’s small and medium scale needs. Second, it ensures that the human resources of National Societies have more ongoing direct experience in international knowledge sharing. Lastly, it is a practical way for internal outsourcing of the work of the International Federation which can result in effective management of global resources.
Cooperation agreement
The Secretariat of the International Federation is testing and promoting a mechanism for the coordination of cooperation agreements. This mechanism is referred to as CAS (cooperation agreement strategies). CAS is intended to be a cyclical process for managing cooperation within the Movement based on the goals of Strategy 2010 and Strategy for the Movement. The process calls for a collaborative approach to cooperation to ensure that the impact of international assistance is both maximized and lasting.
The collaborative approach necessitates joint planning and management of the flow of resource allocation. Through CAS, resources of the Movement can be targeted in coordination with external partners active in the humanitarian sector and promote the spirit of collective responsibility.