STRATEGIC PROGRAMME DOCUMENT
June 2013 – March 2014.
1. SITUATIONAL ANALYSIS
The US-led invasion of Iraq in 2003 and the subsequent conflict caused the displacement of about
4.5 million Iraqi civilians. - 2, 5 million became internally displaced and 2 million travelled abroad
being welcomed to differing degrees in the neighbouring countries of Syria, Jordan, Lebanon and
Egypt. The Iraqi displacement in Syria reached a peak in 2009 - officially representing 8% of the
Syrian population. The big influx of Iraqi’s strained the country’s infrastructure and destabilised in
some areas, the economy and employment.
From 223,854 registered Iraqis in early 2009, the population decreased to 86.000 individuals in
October 2012 confirming a returning trend accelerated by the deteriorating security situation inside
Syria. Despite the on-going civil war in Syria, the country still hosts significant urban refugee and
asylum seeker population (app. 65.000 as of June 2013) consisting of Iraqis and smaller numbers of
Somalis, Afghans, Sudanese and Iranians. Syria maintains its policy of free access for refugees to
public services, e.g. primary health and basic education.
By the end 2012 the civil war in Syria spread to all 14 Governorates and as of October 2013, an
estimated 9,5 million people are in need of humanitarian assistance, and more than 6,5 million
people are internally displaced, mostly in urban areas such as Homs, Aleppo and Damascus (OCHA
planning figures for 2014 SHARP). Fighting between Government forces and armed opposition
groups continues to escalate, with both sides increasingly making use of heavy weaponry in
populated areas.
With anti-Government armed groups taking control of areas in the northern and eastern provinces,
the country is becoming increasingly fragmented, and there has been a surge in sectarian violence.
The number and scale of human rights violations has grown, with continuing reports of ill-treatment
of detainees, gender based violence and child-recruitment.
During the winter months, the situation will worsen considerably especially for the large number of
displaced people living in urban areas in temporary shelters. But all Syrians are struggling with the
general insecurity throughout the country; increasing unemployment (estimated that 2,8 million
jobs are lost); rising inflation and a government unable to provide basic services and ensure
subsidies to the most vulnerable on essential items.
2.1
Root causes of displacement
The increasingly violent conflict in Syria has caused dynamic displacement of Syrians and refugees
alike, which unfolds in unpredictable patterns. The conflict is dynamic, asymmetrical and on-going in
multiple locations at the same time. Populations are often displaced several times, as the conflict
moves from place to place. Homs is a case in point; up until June / July 2012, the majority of
displaced populations from Homs moved to Aleppo and Damascus. With the rising violence in
Aleppo, Damascus and Idleb, some of the Homs displaced populations have now either returned to
Homs or indeed sought new areas for shelter.
2.2 The situation for refugees, IDPs and other affected groups
Unlike other Arab countries, Syria has maintained an open-border policy since the outbreak of the
Iraq war in 2003. However, following the outbreak of its own civil war, the official as well as popular
position towards refugees and asylum seekers has changed. Due to the increasingly violent conflict,
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affecting most of the suburbs in Rif Damascus, where the original target population of Iraqi refugees
were living, tens of thousands of Iraqi’s have returned to Iraq and / or become displaced to other
places inside Rif Damascus. In Rif Damascus, the fighting has led to sectarian tensions, including also
a rising hostility towards refugees in Syria.
Most Iraqi refugees still residing in Syria (65,000) are often those, who for different political reasons
are not able to return to Iraq. Today, they face a protracted displacement situation inside Syria and
are confronted with increasing economic and social vulnerabilities. Many are running out of
resources and forced to accept illegal works placing them at risk of exploitation by employers as well
as arrests by the local authorities. Prostitution and illicit jobs remain for some the only solution
available. Though the demand for resettlement of refugees is very high, only a small fraction of the
population has been/will be selected for resettlement.
Of the approximately 6,5 million Syrians believed to be internally displaced, less than 4 % live in
collective shelters / rehabilitated schools. It is assessed that more than 700 public schools are
hosting internally displaced people in the country. According to SARC and MoE, app. 200 schools are
used as collective centres in DAM and Rural Damascus alone. The lack of proper sanitation facilities
is one of the major problems in these shelters.
A large number of IDPs are living in temporary locations, like unfinished buildings, factories or empty
public buildings. These are the most venerable of the IDPs but are at the same time the most difficult
to access because they are scattered in urban communities and often close to contested areas. In
addition the Syrian authorities have restricted the humanitarian actors abilities to do outreach work.
The vast majority of IDPs are either in rented apartments or living with host families. However, as
the economic situation becomes more difficult, with job loss and increased cost of living, the
situation is worsening for both the IDPs and the host communities. SARC is now reporting that host
communities are approaching them asking for assistance. Hence, for the 2014 SHARP it is estimated
that at least 9,5 million out of a population of 20 – 22 million have humanitarian needs.
2. BACKGROUND ON DRC´s OPERATION IN SYRIA
In 2007, DRC received official permission to provide assistance to Iraqi refugees in Syria. Operations
started in May 2008, when DRC took over 8 community centres (CC) in Damascus and Rif Damascus
in co-operation with the Syrian Arab Red Crescent (SARC) supported by UNHCR. All activities in the
CC were exclusively for refugees – and the overall aim was, aside from providing protection
assistance, to assist with durable solutions to refugees’ identified needs within the sectors of skills
development.
During 2008, DRC next engaged in the Education sector, partnering with the Ministry of Education,
rehabilitating both primary and secondary schools in Damascus in areas with a high refugee
population. While the objective initially centred on physical structures of schools, DRC next engaged
with quality education services in schools with a high percentage of refuges, again with a view to
providing durable solutions to refugees.
In June 2012, DRC received official permission from Syrian authorities to assist the Syrian population
affected by the civil war. The DRC subsequently built its emergency response strategy on its key
areas of operation, namely Rif Damascus, Homs and Deraa, where community structures were
already in place.
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3. DRC SYRIA STRATEGIC PRIORITIES FOR COMMUNITY SERVICES AND EDUCATION
3.1 Community Services / Protection
DRC is operating, in coordination with SARC, 3 CC in Rif Damascus and 1 in Damascus, all supported
by UNHCR. (Jaramana; Mazaken Barseh, Qudsaya and Dahit Qudsaya.) The on-going conflict in the
country has hugely challenged humanitarian actors engaged with community services, and as a
result, DRC lost access to one of its former CC, that of Saida Zenab.
In the CC of Rif Damascus and Damascus, Syrian IDPs are as a result of the conflict an increasing
clientele accessing the structures, which were initially designed for refugees. The overall percentage
division between IDPs and refugees in the CC is today 70/30 % respectively.
DRC and its partners have as a result of the conflict adjusted its services to address the new needs of
IDPs and refugees alike, many of which are displaced populations. This includes, where relevant, a
stronger focus on out-reach services to displaced populations in communal shelters as well as a
rising focus on protection and otherwise counselling services, including psychosocial support. In line
with a rising number of children affected by the war, DRC has scaled up its child protection capacity
through a close collaboration with SARC branches in Rif Damascus; UNHCR and UNICEF. As regards
gender based violence, DRC is discussing new likely steps with the Ministry of Social Affairs and SARC
for DRC to be able to address such issues through its legal counselling – and advice on relevant
referral.
In 2013, DRC has strengthened its referral capacity of vulnerable populations to receive medical
assistance and otherwise general support. This has been achieved through a close coordination with
SARC branches and other local associations for social / economic assistance as well as with IMC
(International Medical Corps) to ensure medical assistance through its clinics in DRC areas of
operation. DRC’s ability to refer clients to a rising number of agencies has strengthened the
organisation’s capacity to ensure protection of vulnerable populations.
Aside from the CC in Damascus and Rif Damascus, DRC runs 2 other CC supported by DANIDA in
Deraa and Homs. The primary sectors of work in these CCs are the same as in the Damascus area.
DRC counsels between 500 - 800 people per centre every month. This includes legal and social
counselling. In addition app. 1.000 persons take part in skills development activities every month.
3.2 Educational and Vocational Activities
As for educational activities, DRC has extended its support to 20 Ministry of Education (MoE) schools
in Rif Damascus; Homs and Deraa. Activities encompass remedial education, extra-curricular and
awareness raising activities for children as well as vocational training for displaced population /
youth at risk. DRC has moreover scaled up its focus on Psycho Social Support (PSS) sessions to
teachers and counsellors.
In view of the continuing conflict and an increasingly protracted displacement, DRC has through its
community services in 2013 identified a rising need to support medium term needs of displaced
populations, in particular psychosocial support and vocational activities. To ensure a diversified
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approach, DRC not only provide vocational activities through the MoE structures, but also through
UNRWA and Private Institutes.
3.3 An integrated approach
The DRC operation seeks to integrate the components of its Community and Educational activities.
By doing this DRC can ensure that qualified educational and counselling support is provided to
clients at the Community Centres. It also ensures a stronger dialogue between the needs of the
communities and the capacities of official institutions: Displaced students, drop-outs from school,
psychologically affected children and concerned parents are in this way able to receive integrated
services as well as referrals between the CC and the educational institutions. This has proven
particularly relevant in light of the Syrian Conflict.
4. DRC SYRIA STRATEGIC PRIORITIES FOR THE EMERGENCY RESPONSE
The emergency operation consists of the 2 main pillars: NFI Provision and Shelter. The total
emergency program makes up more than 70 % of DRC’s total budget,
4.1 Provision of NFI’s
DRC focused from the beginning of its emergency response on provision of NFIs.
By mid-2013, DRC has become the biggest INGO provider of NFI’s inside Syria, assisting more than
500,000 people during the first half of 2013. NFI’s provided for by DRC entail hygiene kits; blankets /
mattresses and winterisation assistance. During the second half of 2013, DRC will step up the
provision of baby kits in keeping with a rising needs therefore.
In keeping with strategic priorities to assist in areas with immense and un-met needs – at either side
of the political divide – DRC Syria expanded during the second quarter of 2013 its operation to the
Northern Governorate of Aleppo. - Further, DRC Syria sees it as a strategic priority to be able to
respond to emergency needs, when called upon by partners. As a result the organisation has also
extended its assistance to areas outside of its core areas. This includes responding to a massive
influx of displaced people to Deir Azour and assisting recently displaced in Dwella.
4.2 Technical Assistance to SARC on Emergency / Distribution
Alongside the provision of NFIs, DRC Syria has invested in providing Technical Assistance to SARC
staff and volunteers at field level and is in this way contributing to capacity building of the national
society. Aside from provision of hard-ware to distribution points, DRC Syria holds regular work-shops
focusing on modalities related to distribution as well as key principles of humanitarian action.
4.3 Shelters and WASH
As part of its emergency response, DRC rehabilitates schools used by internally displaced
populations (IDPs) as temporary shelters to ensure a minimum standard of living conditions and
basic sanitary conditions there. (ECHO; DANIDA, UNHCR) As of October 2013, DRC has rehabilitated
and equipped with relevant sanitary installations more than 30 shelters in Rif Damascus, Homs,
Aleppo Governorate as well as Deraa.
During the latter half of 2013, DRC will further strengthen its provision of WASH services in shelters.
As part of the winterisation response 2013 / 2014, DRC will increase focus on providing sealing off
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kits for families living in unfinished private buildings, just as DRC is preparing to undertake shelter
rehabilitation in unfinished public buildings, to accommodate the growing number of displaced
persons.
4.4 School rehabilitation for education purposes
DRC undertakes light rehabilitation of public schools damaged by the conflict in all its areas of
operation to promote access to education during the conflict period. These activities are supported
by SIDA and DANIDA and DRC is, together with the MoE, developing relevant Minimum Standards
for schools.
5. DRC’S VISION AND PROGRAM
DRC’s overall objective is: Protection and promotion of durable solutions for the displacement
affected populations in Syria
The overall objective focuses on the Syrian displaced population as well as refugees. It also
recognizes the importance of providing support to Syrian host communities.
a) Firstly the DRC will respond primarily to the rising emergency needs: protection as well as
assistance – in its key areas of operations, hereunder promoting cross-lines operations in
consideration of the dynamics of the conflict.
b) Alongside this, the DRC continues and will, where possible, also scale up support to medium
term needs (Psychosocial support; vocational activities; educational support; skills
development)
c) Through its simultaneous focus on immediate needs as well as promotion of durable
solutions – the DRC seeks to strengthen relief-recovery efforts through an integrated way of
operation.
5.1 Summary of constraints to durable solutions for DRC assisted target populations
-
Insecurity in many areas of Syria and an increasingly militarised context;
-
A rise in the number of armed groups with often with very contradictory ideologies.
-
Rising emergency needs throughout the country alongside insufficient access to all
areas of the country.
-
An increasingly politicised humanitarian environment
-
Regionalisation of the conflict
-
The main provider of assistance SARC overwhelmed by needs as well as political
constraints.
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6. Humanitarian activities by other actors
The main local providers of assistance in Syria are the Syrian Arab Red Crescent, the Ministries of
Education and Health, Ministry of Local Administration and Ministry of Social Administration.
Today, 16 INGOs are accredited to assist the conflict-affected populations alongside the main UN
actors (UNHCR, WFP, WHO, UNRWA, UNFPA and UNICEF). Out of the 16 INGOs in the country, only 6
have considerable on-going operations and have been in the country for several years. Most of the
INGOs are still struggling to start up their operations.
6.1 Humanitarian Coordination
OCHA established an office in Damascus in 2012 and is increasingly leading the coordination and
reporting of humanitarian assistance in the country. There is a Humanitarian Coordinator in place
and as of September 2013 a functioning Extended Humanitarian Country Team with representatives
from the INGO community. DRC is one of 3 INGOs taking part in these meetings.
A cluster system has also been established and although it has been a slow start most of the clusters
are now working and have been able to make contributions to the on-going SHARP process (October
2013)
7. DRC’s OPERATIONAL MESSAGING FOR THE SYRIAN CONFLICT
In view of a deteriorating security situation and an increasingly politicised context, the DRC has
adopted and will operate in adherence to the following:
•
We reaffirm the assessment that our greatest value to the Syrian humanitarian response is
to continue working through Damascus, and as a result we maintain our policy that no DRC staff,
materials or equipment may cross international borders for any purpose without the consent of the
Syrian government. We will continue to assess the humanitarian situation throughout Syria, and any
change in our policy will be authorised by the Secretary General.
•
We remain committed to support a “whole of Syria” approach in both evaluating the
humanitarian needs and in mapping the existing response - and will continue to work with OCHA,
the Red Crescent and NGOs to achieve this.
•
We remain committed to step up our humanitarian activities throughout Syria, and will
routinely measure our response to see if we are providing needs-based assistance though-out areas
accessible from Damascus.
•
We recognise that the Syrian Government has an obligation to protect civilians throughout
Syria, while Opposition groups have a similar obligation in areas that they claim to control. We will
continue to advocate for the international community to hold both the Syrian government and
Opposition groups accountable.
Practical Steps:
•
DRC Syria will work with the Red Crescent and other local partners to improve the data
available on humanitarian needs and responses in areas accessible from Damascus
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•
DRC Syria will increase its technical support to a dedicated and qualified monitoring base,
which will consist of DRC volunteers and staff that will be deployed to different parts of the country
in order to improve our monitoring of the humanitarian response.
•
DRC Syria will share info with DRC Turkey and Iraq to improve updates / analysis of the
needs in northern and Eastern Syria.
•
DRC will advocate with OCHA at all levels for them to step up to their mandate to collect
data on needs and responses throughout Syria.
8. DRC Organisation and staffing
The DRC program in Syria is managed from its main office in Damascus, where it has 35 staff,
including 6 expatriates.
DRC has structured its team in Syria in a way that reflects the 3 priority sectors: Emergency
Response, Protection and finally Community Services and Education. DRCs set-up in Syria includes 4
staffed community centres in Rif Damascus, Damascus and 2 centres in Homs and Deraa. All in all,
DRC has 41 national staff and 119 volunteers.
The national staff regularly receives training on technical aspects (finance, procurement; safety) and
cross-cutting elements (like protection; humanitarian law; managerial skills, project cycle
management)
DRC anticipates, security permitting, to open up a new community centre in Aleppo during 2014 and
thus expand its structure further.
In keeping with increasingly dangerous and potentially traumatic working conditions, DRC recruited
a psychologist available for all staff upon request. The psychologist furthermore undertakes group
supervisory sessions to DRC counsellors and volunteers in the CC.
The safety set-up of the DRC is managed by the Country Director and a national Safety Advisor. The
DRC Syria has a Contingency plan in place and is in the process of strengthening its remote
management capacity. A regional safety advisor and the security department at HQ in Copenhagen
support the security management team in Syria.
DRC has a regional set-up in Amman, Jordan providing support to the Syria, Lebanon, Iraq, Turkey
and Jordan country operations. This gives the country operations access to a number of specialized
functions (e.g. international procurement) that it would otherwise not have been able to access
because of the limited availability of visas for Syria.
9. Funding
DRC Syria’s donors are presently composed of ECHO; UNHCR, DANIDA, SIDA; OFDA; UNICEF, ERF;
DRC own funds and private funds. The overall budget in 2013 is as of October 25 million USD.
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