OCHA

Syrian Arab Republic

SYR

Violence and economic crisis in Syria have resulted in a serious humanitarian situation that has regional repercussions. Since March 2011, hundreds of thousands of people have been displaced temporarily or for extended periods, and their needs are placing a strain on host communities. Over 100,000 refugees have arrived in neighbouring countries. Communities in towns affected by conflict are particularly vulnerable, and access to health services, including treatment for the wounded, is limited. Damage to housing and public infrastructure is extensive, and markets, production and social services are disrupted. The economic impact of the crisis is deepening vulnerabilities and increasing poverty levels. The outlook for the agricultural and commercial sectors is poor, as unrest will likely continue for some time.

Given the scale of humanitarian needs and the likelihood that the situation will deteriorate, a significant relief effort will be required to continue. To support the humanitarian response, an OCHA presence will likely be required for at least the next two years.

In 2012, OCHA continues to focus on negotiating access to affected people, information management, and coordinating a rapidly increasing humanitarian response and advocacy. OCHA will also continue to facilitate the Emergency Response Fund. OCHA will be ready, when feasible, to support durable solutions for displaced people, and a transition to early recovery and development assistance.

CONTEXT ANALYSIS

The Socio-political Situation

Anti-Government protests in Syria broke out in the southern province of Dar’a in March 2011. Since then, demonstrations and unrest have spread to most cities in Syria, and an extensive armed element to the opposition has emerged. The Government’s initial response to the protests, unrest and armed insurgency was a mix of force and political concessions, including the repeal of the country’s emergency laws, approving laws permitting new political parties, and liberalizing local and national elections. The crackdown on unarmed protestors developed into a larger-scale armed insurrection including, in some places, localized armed conflict. A joint UN-Arab League peace initiative with Security Council backing did not stop the violence despite a ceasefire agreement in April. A UN-mandated six-point ceasefire and peace plan supported by the UN supervision mission is being pursued as the main mechanism to lead parties to a transition phase.

Syria’s population is estimated at 20.8 million people,[1] 35 per cent of whom are under age 15. Sunni Muslims account for the majority (74 per cent), while other Muslims (Alawite, Druze) represent 16 per cent. The remaining 10 per cent are Christians. Life expectancy is estimated at 75.9 years.[2] Before the crisis, 86 per cent of the population had access to improved drinking water[3] and 96 per cent to improved sanitation.[4] The literacy rate among the population is 84.2 per cent.[5] Syria ranks 119 out of 187 on the Human Development Index, well below the average of the Arab States. Prior to the crisis, 30 per cent of the population was already living on US$2 or less per day. Months of crisis and international sanctions have also taken their toll, driving inflation and devaluation.

The Humanitarian Situation

At least 1.5 million people urgently need humanitarian assistance, but this number is likely to increase significantly. Families fleeing violence have placed an additional strain on the limited resources of host communities. In towns and cities affected by fighting, access to medical assistance and food are the most pressing needs. Other priorities include shelter, non-food items, water and sanitation, and education.

The deteriorating security situation is exacerbating existing vulnerabilities and deepening poverty in urban and rural areas. In addition, the economic crisis has affected poor farming and herding communities in the east and north-east, as well as migrant labourers in other parts of the country. Large numbers of rural people have been unable to farm or market their products due to the crisis, and hundreds of female-headed households have lost their only source of income. Projected wheat crop shortages[6] and food security assessments indicate that a significant number of people will remain in need of food assistance.

Syria hosts over 1.5 million refugees, one of the largest urban refugee populations in the world. Half a million of these people are Palestinian and 88,000 are from Iraq. These communities are also facing increasing difficulties. UNRWA has reported a significant number of displaced Palestine refugees. Outside Syria, the number of Syrians who have registered with UNHCR and host Governments in neighbouring countries has grown to over 105,000.

The main response challenges include insecurity, lack of access to people in need and limited capacity of partners.

The Humanitarian Strategy & Response

UN agencies have adapted programme activities to respond to new humanitarian needs. In March, IASC principals agreed to increase the capacity of the UN County Team (UNCT) by appointing a Regional Humanitarian Coordinator (RHC) and designating Humanitarian Coordinators in Jordan and Lebanon. Following a Government-led humanitarian needs assessment in March, the Syria Humanitarian Response Plan has been revised, resulting in an agreement between the Government and the UN on the scale of the needs and priority sectors. UN agencies seek $180 million for 44 projects to address the needs inside Syria in sectors including protection, education, food, health, livelihoods, non-food items, shelter, water, sanitation, hygiene, logistics, emergency telecommunications, staff safety services and coordination.

Despite a challenging operating environment—and following an agreement with the Government of Syria—the UNCT, working with Syrian Arab Red Crescent, is scaling up humanitarian assistance. In June, food assistance was provided to over 500,000 people, but this number is expected to increase to 850,000 in July. Essential non-food items have been provided to 135,000 people. The vaccination of 280,000 children was completed in May, and more than 15,000 children received remedial education and psychosocial support. Emergency health kits have been distributed to affected areas, with a capacity to assist 100,000 people. Mobile clinics will be in place to support a further 160,000 people.

The UN in Syria is expanding its field presence. It has offices in Damascus, Al Hassekeh, Aleppo, Ar Raqqa, Deir-ez-Zor, Lattakia and Tartous. More offices are planned. Security constraints may not allow for a full-time presence in all locations, but mobile teams aim to reach more people, monitor delivery and conduct rapid assessments whenever access is temporarily available.

OCHA has supported the RHC in negotiating an agreement that allows the eight international NGOs present in the country to expand their operations: International Medical Corps (IMC), the Danish Refugee Council (DRC), HELP (Germany), Premiere Urgence (PU), Against Hunger (Spain), IECD (Italy), Islamic Relief (France) and Terre des Hommes (Italy).

The Government will also allow more local NGOs and community-based organizations to work with UN agencies. Over 1,000 national NGOs, community-based organizations, faith-based organizations and charities are registered with the Ministry of Social Affairs and Labour. OCHA is supporting the process and strengthening their capacity.

Projections

The UNCT considers the most likely short-term situation to be continued fighting in areas of the country, with very limited humanitarian access and grave protection concerns.

Access restrictions and security, partnership and other challenges will continue to impede the delivery of life-saving assistance. The medium- to long-term impact of the crisis, compounded by international sanctions, will further constrict the Syrian economy. The limited capacity of national authorities to replenish stocks and deliver services will be further reduced. The following are the key humanitarian implications:

Increasing numbers of civilian deaths and injuries (particularly during military operations).

Widespread human rights concerns, including arbitrary detentions and torture, restricted freedom of movement, and impeded access to medical care, food and other basic services (telecommunications, electricity and water).

Lack of, or limited access to, basic needs and services (food, water, health care, electricity and telecommunications) in the most affected areas such as Homs, Idleb and Dar’a during ongoing military operations (sieges, curfews).

Deteriorating socioeconomic conditions and increased vulnerability among poor communities mainly due to limited local market capacity, sanctions and disruption of in-country trade.

A deterioration of the situation of Palestine and Iraqi refugees hosted in Syrian neighbourhoods and affected communities.

[1] Human Development Report, 2011

[2] Human Development Report, 2011

[3] http://www.unicef.org/infobycountry/syria_statistics.html

[4] http://www.unicef.org/infobycountry/syria_statistics.html

[5] http://www.unicef.org/infobycountry/syria_statistics.html

[6] A yield of 2 million MT is expected compared with a minimum need of 3.6 million MT.

STRATEGY

Background

In 2008, OCHA established a Humanitarian Support Unit (HSU) in Syria. Led by a national officer and reporting to the OCHA Regional Office for the Middle East, North Africa and Central Asia in Cairo, the HSU focused on emergency preparedness by providing technical and coordination support to the RC’s Office and the UNCT. Given the escalating humanitarian situation in Syria, OCHA deployed an international staff member in December 2011. Additional staff were deployed in March and April, and staff in Amman, Jordan, provide additional capacity.

UN and NGO partners are increasing their capacity to support humanitarian operations in Syria and the region. Continued internal conflict in Syria is likely to persist into 2013, and the humanitarian situation requires a significant scaling up of humanitarian operations in Syria and neighbouring countries. Guided by the IASC principals’ decisions in March, and under the RHC’s leadership, OCHA supports the strategic and coordinated provision of humanitarian aid, as per the needs highlighted in the Syria Humanitarian Response Plan.

Current focus

In March 2012, IASC principals agreed to scale up coordination efforts in response to the humanitarian situation in Syria and the region. They agreed to:

Urgently increase the capacity of the Syria UNCT and establish effective coordination mechanisms so that they can respond to needs arising from the complex emergency.
Develop regional and Syria-specific plans and information management mechanisms, including with NGOs and relevant institutions.
Advocate the protection of human rights and humanitarian principles.
Seek sustainable and safe mechanisms for practical humanitarian access and increased implementation capacity.
Coordinate high-quality needs assessments and response.
Mobilize resources against a common plan and a rapid and flexible funding facility.
Support Syrian Arab Red Crescent SARC and other national and local actors, including national NGOs and community-based organizations, to enable them to effectively assist.

To support this process and provide support to the HC and the humanitarian response, OCHA must increase its presence inside Syria. Although the Government has not yet agreed to the opening of an OCHA office, all efforts are being made to deploy staff to Damascus. In accordance with its mandate, OCHA’s work in Syria will focus on the following:

Support the strengthening of the UNCT and HCT capacity in Syria to address the crisis, including through the establishment of more-robust humanitarian coordination mechanisms.
Support the RHC, UNCT and HCT in negotiating expanded access and response mechanisms with the Government.
Coordinate humanitarian assessments.
Support the RHC and the UNCT in defining a response strategy and monitor its implementation.
Provide regular reporting.
Provide core staffing for UN field offices.
Provide humanitarian organizations in Syria with necessary information management services, e.g. GIS, 3W.
Support sectoral coordination.
Ensure appropriate liaison between the HCT and UNSMIS.
Provide the humanitarian community in Syria with rapid and flexible funding (CERF/ERF).
Help the RC and the UNCT define security arrangements that allow for the timely provision of humanitarian assistance (stay and deliver).

The IASC appointed an RHC to address the growing impact of the crises on neighbouring countries. The RHC plays a key role in maintaining humanitarian space, and in distinguishing between humanitarian response and political discussions at the regional level. The RHC also liaises with the joint UN-League of Arab States, Joint Special Envoy and UNSMIS at the highest levels and supports RCs/HCs in the region.

Forward Strategy

Given the fast-changing circumstances, OCHA will regularly reassess the size and configuration of its presence. OCHA expects to focus on the following priorities:

Coordinate the humanitarian response to ensure the appropriate, adequate and timely delivery of humanitarian assistance to the most affected people. This will include providing support services to the humanitarian and wider international community (e.g. situation reports); supporting coordination mechanisms (sector working groups/clusters); facilitating common assessments; and establishing effective information management systems and field offices.

Coordinate efforts to improve the protection of civilians and respect for humanitarian principles by all parties.

Support the efforts of the ERC and the RHC to improve humanitarian access. This will involve advocating access and freedom of movement for humanitarian actors, and developing agreements to ensure their safety.

PERFORMANCE FRAMEWORK

Result 1: AN EFFECTIVE HUMANITARIAN COORDINATION SYSTEM ESTABLISHED IN-COUNTRY
Indicator 1. Decisions taken by Humanitarian Country Team (HCT) led to improved delivery of humanitarian assistance to vulnerable people.
BASELINE 2011	HCT will be established in August 2012. The work of the Syria United Nations Country Team (UNCT) has traditionally been limited to development-oriented projects, including projects targeting Palestinian and Iraqi refugees living in Syria. Ten UN agencies, IOM and 11 INGOs are operational inside Syria. Of these, eight INGOs are able to expand their operations from Iraqi response to supporting the affected Syrians, following an agreement between the Regional Humanitarian Coordinator (RHC) and the Government of Syria. Some sector working groups are operational and others will start soon.
TARGET 2012-13	The HCT/UNCT will support agencies to mobilize enhanced emergency capacity, and to realign existing activities to better support humanitarian needs. The HCT will establish all relevant sector working groups to plan, implement and monitor project activities under the Humanitarian Response Plan. The HCT/UNCT will identify and engage with local NGOs able and willing to provide humanitarian assistance.
Indicator 2. Level of satisfaction expressed by key stakeholders (Government, donors, humanitarian actors) with coordination leadership.
BASELINE 2011	No assessment of client satisfaction is available yet. The RHC provides humanitarian coordination leadership. Scaling up the humanitarian response will require additional coordination capacity at sector/cluster level to support agencies' effective delivery of assistance. Additional coordination support is required at the regional level.
TARGET 2012-13	Client satisfaction surveys will be conducted in 2012. Stakeholders will express positive attitudes towards the delivery of OCHA, the RHC and the HCT/UNCT. Stakeholders will express satisfaction with dedicated forums for multi-stakeholder coordination, such as Syria humanitarian forums. Stakeholders will note the added value of decisions enhancing coordination leadership, including the appointment of an RHC, the designation of RCs as HCs in countries affected by the Syrian crisis, and deployment of additional coordination support to HCs in support of their new roles.
Indicator 3. Effective inter-cluster coordination in place, documenting decisions and tracking adherence.
BASELINE 2011	OCHA has deployed international staff to support the RHC in coordinating identification of humanitarian needs, capacity and response options. Three CERF allocations have been coordinated across sectors to respond to immediate humanitarian needs. Humanitarian issues are regularly discussed and evidenced in UNCT/HCT decision-making.
TARGET 2012-13	Sector working groups or clusters will be established to ensure coordinated mapping of humanitarian needs, response and gaps. The RHC and RC, supported by the UNCT and OCHA, will establish robust planning and implementation capacity. Established sector working groups will convene inter-sector discussions on a frequent and regular basis.

Result 2: A SHARED SITUATIONAL AWARENESS OF HUMANITARIAN NEEDS GUIDES A COMMON RESPONSE
Indicator 4. Joint assessment and analysis of needs guide response planning.
BASELINE 2011	Since the Government-led rapid assessment, further inter-agency assessments have not been conducted due to access limitations. Planning is based on estimates drawn from pre-crisis information, and data from the Syrian Arab Red Crescent and sector-specific assessments that have started.
TARGET 2012-13	Joint assessments will be conducted across affected areas in Syria. Key humanitarian needs will be identified in each sector. These needs will inform sector working group/cluster planning and response. The Syria Humanitarian Response Plan (SHRP) will be revised as appropriate to better reflect planning and implementation requirements. Additional assessments will be conducted as areas become accessible.
Indicator 5. Common response plan endorsed by the HCT fully reflecting priority needs in line with IASC-approved appeal policy and guidelines.
BASELINE 2011	The joint humanitarian strategy and relief operations are outlined in the Syria Humanitarian Response Plan. They seek US$180 million for 44 projects to address the needs inside Syria in various sectors.
TARGET 2012-13	As revised information on needs is sourced, agencies, sectors and the HCT/UNCT will revise planning and response to reflect any revisions to humanitarian priorities.
Indicator 6. Percentage of an appeal’s requirements prioritized in the highest category.
BASELINE 2011	N/A
TARGET 2012-13	N/A
Indicator 7. Percentage of projects in each Gender Marker code (0, 1, 2a, 2b).
BASELINE 2011	N/A
TARGET 2012-13	N/A
Indicator 8. Level of satisfaction expressed by stakeholders with the IM products supporting the analysis and monitoring of the programme cycle.
BASELINE 2011	No client surveys have been conducted. The sensitivity of the Syrian Government limits the selection, development and distribution of IM products.
TARGET 2012-13	Client-satisfaction surveys show that 80 per cent of humanitarian stakeholders are satisfied with the quality of OCHA IM products, including 3Ws, contact lists, meeting calendars, survey of surveys and maps.

Result 3: A WELL-RESOURCED COMMON RESPONSE PLAN REGULARLY MONITORED
Indicator 9. Percentage of CERF and CHF allocations that are made towards highest priority projects. Percentage of ERF project allocations that are made in accordance with agreed criteria.
BASELINE 2011	CERF allocations have been made under the rapid response window.
TARGET 2012-13	One-hundred per cent of CERF allocations are made towards the highest-priority projects; 100 per cent of ERF project allocations are made in accordance with agreed criteria (for sector working groups/clusters that have developed criteria).
Indicator 10. All clusters publish information on collective outputs vs. targets as expressed in their cluster response plans.
BASELINE 2011	Sector working groups are being strengthened and will work on sector response plans.
TARGET 2012-13	Sector working groups will be established, meet regularly and systematically share information on their discussion, activities and targets. Sectors will regularly review their planning and delivery against priorities laid out in the Humanitarian Response Plan.
Indicator 11. Percentage of country-based pooled-fund projects monitored according to agreed monitoring plan.
BASELINE 2011	ERF Syria has been established. The project proposals are being considered and are being approved.
TARGET 2012-13	Ninety per cent of implementing partners will provide regular monitoring reports on delivery of project objectives. The Syria ERF will be run in full accordance with OCHA policies. OCHA will have established proper monitoring of ERF-funded projects.
Indicator 12. Level of stakeholders’ satisfaction of OCHA resource mobilization and management of pooled-fund processes.
BASELINE 2011	No client surveys were undertaken in first half 2012. The $180 million SHRP has been shared with donors. A Syria ERF has been established.
TARGET 2012-13	Client surveys will be conducted. Ninety per cent of stakeholders will express satisfaction.

Result 4: IMPROVED ACCESS BY ALL VULNERABLE POPULATIONS TO SERVICES AND ASSISTANCE
Indicator 13. Increased access to previously inaccessible regions and populations.
BASELINE 2011	Access for humanitarian activities is constrained. Ongoing insecurity, Government restrictions on areas requiring access, and inconsistent clearance requirements for delivery of humanitarian assistance limit access to vulnerable people.
TARGET 2012-13	A better mechanism for access for humanitarian processes will be developed and implemented. Limited, time-specific and pre-approved access will be available to more humanitarian actors in an increased number of communities requiring assistance.
Indicator 14. Number of arrangements to facilitate access developed and implemented through engagement with the relevant actors.
BASELINE 2011	OCHA negotiated an agreement with the Government to allow the provision of humanitarian assistance to civilians affected by violence in Syria, greater involvement of national and international NGOs, and greater presence in the field.
TARGET 2012-13	OCHA will increase the number of actors that have access to people in need by helping INGOs to develop humanitarian partnerships with SARC, and helping INGOs and NGOs to develop and implement humanitarian projects in line with ERF funding requirements. OCHA will strengthen the UN humanitarian field presence in selected field hubs. OCHA will coordinate closely with the Government to secure streamlined access-approval processes for humanitarian assistance.
Indicator 15. Percentage of key stakeholders (Humanitarian Coordinator, cluster coordinators, agency heads, donors, etc) report being more informed on access.
BASELINE 2011	Client survey not yet undertaken. Key stakeholders such as Member States regularly reference humanitarian access as a key challenge.
TARGET 2012-13	Client surveys will be conducted. Over 70 per cent will report being more informed on access. OCHA will provide regular access updates in forums such as donor briefings and humanitarian forums, and in documents such as access maps.

Result 5: STRATEGIC COMMUNICATION INFLUENCES A BROADER AGENDA
Indicator 16. Humanitarian principles and priorities are reflected in the strategies/plans of non-humanitarian actors.
BASELINE 2011	Mass media commonly reference humanitarian issues and principles when reporting on the situation in the country.
TARGET 2012-13	Media coverage of the crisis will place the humanitarian agenda front and centre; political actors will recognize and support the distinction between humanitarian and political discussions, interests and requirements; humanitarian priorities will be referenced in key political frameworks for Syria's future.
Indicator 17. Percentage of humanitarian partners viewing OCHA as effective in influencing the broader agenda.
BASELINE 2011	Partners have not yet been surveyed.
TARGET 2012-13	A survey of partner views will be conducted at the end of each year. Eighty per cent of partners will view OCHA as effectively influencing the broader agenda in and on Syria.

Result 6: GOVERNMENTS AND HCT BETTER PREPARED TO COORDINATE AND RESPOND TO FUTURE EMERGENCIES
Indicator 18. Integration of international tools and services in national contingency plans and other government plans.
BASELINE 2011	N/A
TARGET 2012-13	N/A
Indicator 19. Inter-agency contingency plan in place to address new or resurgent emergencies.
BASELINE 2011	OCHA established its first in-country presence in 2008, focusing on preparedness and contingency planning. This capacity enabled OCHA to lead inter-agency contingency planning for the Syria crisis in October 2011. The SHRP is a strengthened, operational version of the 2011 contingency plan.
TARGET 2012-13	The UNCT will review the SHRP as appropriate. If the security situation in Syria stabilizes in the target period, a revised contingency plan will also be developed with the UNCT.

Result 7: RECURRENT HUMANITARIAN CONCERN ADDRESSED THROUGH LONGER-TERM DEVELOPMENT STRATEGIES
Indicator 20. Humanitarian issues reflecting analysis of vulnerability are integrated into devel-opment strategies (UNDAF, PRSP, etc.).
BASELINE 2011	N/A
TARGET 2012-13	If the situation in Syria stabilizes, OCHA will ensure that the UNCT and sectors liaise with relevant development actors, to ensure that transition and development strategies are coordinated properly.

PLANNED STAFFING AND TOTAL COSTS

Total Staff	Professional		National		General Service		GTA		UNV	Total
Total Staff	XBPB	XBAB	XBPB	XBAB	XBPB	XBAB	XBPB	XBAB	UNV	Total
Total Staff 2012	15	1	6	1	0	0	17	1	0	41
Total Staff 2013	21	1	7	0	0	0	17	3	0	49

XBPB: Extrabudgetary Programme Budget | XBAB: Extrabudgetary Administrative Budget | GTA = General Temporary Assistance | UNV: United Nations Volunteers

Total Costs (US$)	Programme Costs	Administrative Costs	Total

Total Costs 2012	4,811,865	110,418	4,922,283
Total Funds Requested 2012			4,811,865
Total Costs 2013	7,506,518	266,196	7,772,714
Total Funds Requested 2013			7,506,518