DRAFT RESOLUTION 15129(LI), as proposed by 13 powers, for consideration at Council meeting 1790 on 23 July 1971
The Economic and Social Council
Bearing in mind that throughout history, natural disasters and emergency situations have inflicted heavy loss of life and property, affecting every people and every country,
Aware of the varying needs of nations experiencing such disorders, which present new challenges for international cooperation,
Concerned over the ability of the international community to come to the aid of countries in a disaster situation,
Recalling General Assembly resolutions 2435(XXIII) of 19 December 1968 and 2717(XXV) of 15 December 1970 on assistance in cases of natural disaster,
Expressing appreciation for the SecretaryGeneral's comprehensive report, and for its perceptive examination of all aspects of the question and taking note of the relevant passage in his statement to the Council on 5 July 1971,
Noting the study, annexed to the SecretaryGeneral's report, on the legal status of disaster relief units made available through the United Nations,
Mindful of recent steps taken to improve evolving procedures in the United Nations system, voluntary agencies and individual Governments in the field of international disaster assistance,
Bearing in mind that assistance to meet the requests of the stricken countries without prejudice to their individual country programmes under the United Nations Development Programme can be an effective contribution to the rehabilitation and development of the stricken areas,
Bearing in mind also that the possible response of the International Bank for Reconstruction and Developmentandothercreditorganizations and development agencies to a request from the Governments concerned for complementary assistance for the stricken areas, without prejudice to the assistance provided by these organizations for the normal development programmes of the stricken countries, can be an important element in the reconstruction and development to the stricken areas,
Noting the competence of the United Nations and its agencies, [the United Nations Children's Fund, the United Nations High Commissioner for Refugees and the World Food Programme,]1 to render assistance in disasters and other emergency situations,
Noting further the key role which the resident representative of the United Nations Development Programme should play at the country level,
Recognizing the vital roles in international relief of [the International Red Cross and other]2 voluntary societies,
Recognizing further the necessity to ensure prompt, effective and efficient response to a Government's need for assistance at the time of a natural disaster or other emergency situation, that will bring to bear the resources of the United Nations, prospective donor countries, and voluntary agencies,
1) Calls on the Secretary-General to appoint a disaster relief coordinator, who would report directly to him, and who would be authorized, on behalf of the Secretary-General:
a) To [mobilize,]3 [instruct]4 [direct]5 [guide]6 and [co-ordinate]7 the relief activities of the various organizations of the United Nations system in response to a request for disaster assistance from a stricken State;
b) [To receive on behalf of the SecretaryGeneral contributions offered to him for disaster relief assistance to be carried out by the United Nations, its agencies, and programmes, for particular emergency situations;]8
c) To coordinate United Nations assistance with assistance given by intergovernmental and non-governmental organizations [in particular by the International Red Cross]9;
d) To assist the Government of the stricken State to assess relief and other needs and to evaluate the priority of these needs, to disseminate this information to prospective donors and others concerned; [and to serve as a clearing-house for assistance extended or planned by all sources of external aid;][10]
e) [To promote the study, prevention, control and prediction of natural disasters, including the collection and dissemination of information concerning technological developments;][11]
f) To assist in providing advice to Governments on predisaster planning in association with relevant voluntary organizations [particularly with the International Red Cross, and draw upon United Nations resources available for such a purpose][12];
g) To acquire and disseminate information relevant to planning and coordinating relief for disasters, including the improvement and establishment of stockpiles in disaster- prone areas, and to prepare suggestions to ensure the most effective use of available resources;
h) To phase out relief operations under his aegis as the stricken country moves into the stage of rehabilitation and reconstruction but to continue to interest himself, within the framework of his responsibilities for relief, in the activities of the United Nations agencies concerned with rehabilitation and reconstruction;
i) To prepare an annual report for the Secretary-General, to be submitted to the Economic and Social Council and the General Assembly;
2) Recommends that [the function of Disaster Relief Coordinator be implemented by the Under-Secretary-General for Economic and SocialAffairs][13] [the Disaster ReliefCoordinator be endowed with the title of High Commissioner, and appointed by the Secretary-General normally for a term of five years, at a level comparable to that of an Under-SecretaryGeneral of the United Nations]14 [the disaster Relief Coordinator will be appointed by the Secretary-General normally for a term of three years, at a level comparable to that of Assistant Secretary-General]15;
3) Recommends that a [small]16 [adequate permanent]17 office be created in the United Nations system for disaster relief matters;
4) Recommends that this office be headed by the Disaster Relief Coordinator and located in [Geneva]18 [New York]19, [be a distinct element within the United Nations Secretariat,]20 and [be augmented as necessary by shortterm secondment of personnel for individual emergencies]21 [be staffed within the limits of the current staff of the Secretariat]22;
5) Requests the Secretary-General to prepare a study for its fifty-third session, taking into account any relevant suggestions and the experience gained by the Disaster Relief Coordinator, on ways and means to enable the Disaster Relief Coordinator adequately to perform the functions entrusted to him under the present resolution;
6) Further endorses the plan for a roster of volunteers to be drawn from experienced staff members of the United Nations system and interested non-governmental organizations, who could be made available at very short notice;
7) Recommends that the Disaster Relief Coordinator should [maintain contact]23 [coordinate]24 with the Governments of States Members of the United Nations and members of the specialized agencies and the International Atomic Energy Agency concerning available aid in emergency situations, such as food supplies, medicines, personnel, transportation and communications, as well as advice to countries in predisaster planning and preparedness;
8) Invites potential recipient Governments:
a) To establish disaster contingency plans [with appropriate assistance from the Disaster Relief Coordinator]25;
b) To appoint a single national disaster relief coordinator to facilitate the receipt of international aid in times of an emergency;
c) To establish stockpiles of emergency supplies such as tents, blankets, medicine and non-perishable food-stuffs;
d) To consider appropriate legislative or other measures to facilitate the receipt of aid, including overflight and landing rights and necessary privileges and immunities for relief units;
e) To improve national disaster warming systems;
9) [Invites]26 [Requests]22 potential donor Governments:
a) To respond promptly to any call by the Secretary-General or by the Disaster Relief Coordinator on his behalf;
b) To consider and to continue offering on a wider basis emergency assistance in disaster situations;
c) To inform the Disaster Relief Coordinator in advance about the facilities and services they might be in a position to provide immediately, including where possible relief units, logistical support and means of effective communications; 10 11 * *
United Nations Disaster Relief Organization (UNDRO): Individual Instructions
United Nations Secretariat (Assistant Secretary-General)
Your name is Ismat Kitani (Assistant Secretary-General of the UN, of Iraqi nationality).
Your responsibility is to chair the meeting(s) in such a way that they result in a draft resolution acceptable to all Member States involved. This can mean abstention, but a negative vote kills the draft: the Member States have veto power on the issue. The nongovernmental organizations and non-Member States have no vote but they are entitled to take part in the negotiations, trying to influence decision making of member states. Take a neutral stand, and act as mediator if needed. Use the corridors intensively, allow time for informal negotiations, and think of time management.ICRC Representative (Non-governmental)
You are Henrik Beer of the International Committee of the League of the Red Cross. The idea of creating a competitor to the Red Cross in the cloak of a UN organization for disaster relief is a ‘disaster’ for the ICRC. Your board does not want this organization: it is an unnecessary duplication and it will only take funds from the ICRC. If you cannot stop theAmericans on this, then try to weaken the mandate of UNDRO and its coordinator (director) as much as possible and prevent any voluntary funding; rather the UN should pay for UNDRO, if needed. Note: of the three keywords ofAmbassador Bush (see scenario), the notion ‘direct’ is very problematic for the ICRC.
UNICEF Representative (Non-member State)
Your name is Henri Labouisse and you are representing the Children’s Fund of the UN. You have severe doubts about the usefulness of a UN organization to fight the consequences of natural disasters. Too many actors are already active in the field. The main problem at the moment is to coordinate all the states and international organizations who want to send relief goods in case of a disaster. Yet another organization will only complicate matters and will compete with your funding resources. This should not happen! Of the three keywords ofAmbassador Bush (see scenario), the word ‘direct’ is very problematic for UNICEF.
US Permanent Representative to the UN in Geneva (Ambassador)
You are Bernie Segorin and you represent the US position. Your country proposes the creation of UNDRO.
It should be a new UN unit with its own, new budget and a firm mandate to enable it to act decisively in mobilizing, directing and coordinating all relief activities in the case of natural disasters. UNDRO stands for healthy competition with organizations like the ICRC and UNICEF which monopolize the present efforts to support stricken countries. This monopoly leads to waste of money in inflexible non-governmental bureaucracies. The coordinator of UNDRO—with the rank of High Commissioner speaking on behalf of the Secretary-General of the UN and firmly established within the UN system—should be as strong and influential as possible in order to overcome these bureaucratic obstacles. It is therefore instrumental to put UNDRO in New York, though this is open to negotiation. Note: the resolution must contain the three keywords mentioned by Ambassador Bush (see the ‘scenario’).UK Permanent Representative (Ambassador)
Your name is Donal McCarthy, representing the United Kingdom. Her Majesty’s government sees the importance of a disaster relief organization. It believes however that it should be enshrined in the UN system. The coordinator should have the title of High Commissioner and should have a semi-independent position. It sees the necessity of creating a new budget for UNDRO, but this could be limited as the staff can be partly recruited from the present UN secretariat. Voluntary funds should be used to supplement the budget as much as possible in order to limit new UN spending. The mandate of UNDRO should be curtailed as you fear yet another bureaucracy if it becomes a policy-making unit instead of a mere implementation unit. However, you should not score at the detriment of your relationship with the USA. In the end, you will always have to agree with the Americans, though you try to undermine their position by having others criticize them.
French Permanent Representative (Ambassador)
Your name is Jean-Fernant Laurent, representative of the French Republic.
Traditionally, France works through organizations like ICRC and UNICEF to help countries who are stricken by natural disasters. Furthermore, there is a strong bilateral French effort, especially in cases where francophone countries are victimized. The Americans now try to downgrade the French position in the area of disaster relief by proposing a new organization. Your task is to undermine the US efforts without damaging the French- US relationship too much. If UNDRO is unavoidable, then try to weaken its mandate and position as much as possible and try to keep it within your realm by putting it in Geneva, with a coordinator of a low rank, or a coordinator with a high rank who is doing the job on a part-time basis. He will only be active in case of disasters. As far as the UNDRO budget is concerned, you are against private voluntary funding as this might damage the funding possibilities of the ICRC. Note: of the three keywords mentioned by Ambassador Bush (see ‘scenario’), the word ‘direct’ is problematic as it emphasizes too much that UNDRO should stand above, and not amongst, the disaster relief organizations. Try to keep this word out of the resolution or try to neutralize it as much as possible.Soviet Permanent Representative (Ambassador)
Your name is Gleb Smirnov, representative of the Soviet Union. Why another UN organization? This will only cost money and the money will have to be paid by the member states. The USSR does not have a very strong economic position at the moment and you are instructed to limit UN spending as much as possible. You cannot, therefore, support the idea of creating UNDRO as a new, separate bureaucratic organization. But on the other hand, this case is not important enough for a Soviet veto. You might settle for an abstention if a majority in the Special Working Group decides on UNDRO as an autonomous body with its own director. As a compromise, you might support a disaster relief unit that is part and parcel of the present UN system in Geneva.
Hereby, extra spending would be avoided as a part of the existing secretariat could do the work. The coordinator could be somebody with a high rank who does this as a side job, next to his main work elsewhere in the UN. Extra payment is not necessary. For the organization itself, one could also think of funding from private voluntary sources, in the way the ICRC has been funded up to now.Tunisian Permanent Representative (Minister-Councillor)
Your country is in favour of creating a United Nations Disaster Relief Organization. UNDRO can be of great help for developing countries like Tunisia in case of natural disasters. You do not care too much about the format of UNDRO. It could be part of the UN family as a separate organization or its tasks could be given to an Under-SecretaryGeneral of one of the existing bodies of the UN. Your special task in this negotiation is to support the chairman of the Special Working Group you are participating in. Together with him, you see to it that some kind of disaster relief facility will come into being. Keep in mind that the chairman in office of ECOSOC is the Tunisian diplomat. His Excellency Mr Idriss. He asked you to support the chair of the Working Group, the Assistant Secretary-General, Mr Kitani. But at the same time, your government instructed you not to undermine the Tunisian-French relationship by stepping too far away from the French position.
Peruvian Permanent Representative (Ambassador)
The government of Peru is one of those that took the initiative for the debates on the creation of a strong, autonomous UN organization called UNDRO. UNDRO should be able to instruct other UN and Non-Governmental Organizations in their dealings with natural disasters. UNDRO’s Director should have the rank of UnderSecretary-General. His power over the other organizations must be expressed in his ability and his mandate to instruct the UN relief agencies and the NGOs like the Red Cross. If ‘instruction’ is unacceptable to the other negotiators in your Special Working group, then the UNDRO Director should at least have the mandate to ‘mobilise, direct and coordinate’ the relief activities.
You can expect certain countries to be sceptical about the creation of UNDRO. The same is true for the established organizations in the field of disaster relief, for example, the Red Cross. Try to make sure that this promising initiative is not paralysed by these parties!Indonesian Permanent Representative (Ambassador)
Together with the ambassador of Peru, you negotiate for a strong United Nations Disaster Relief Organization. UNDRO should have its own staff and its Director should be able to take the lead in relief activities. He can only do that if he has the power to steer the other relief agencies, both from the UN family and from the Non-Governmental side. It is a priority for a country like Indonesia, very vulnerable to natural disasters like earthquakes and floods—as well as man-made natural disasters like forest burnings—to have the best international coordination of relief activities one can imagine. You therefore welcome the speech of the US Permanent Representative to the United Nations, Ambassador Bush. UNDRO’s Director should be endowed with the title of High Commissioner, have his own staff, and be appointed at the level of Under-Secretary-General.