Humanitarian Strategy, 2020-2021 - The crisis in Syria Agencia Española de Cooperación Internacional para el Desarrollo - AECID
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Agencia Española de Cooperación Internacional para el Desarrollo Humanitarian Strategy, 2020-2021 The crisis in Syria —
INDEX HUMANITARIAN STRATEGY, 2020-2021 THE CRISIS IN SYRIA—_3 1. CONTEXT _4 SYRIA_4 Evolution of the war and outlook for the future 4 NEIGHBOURING COUNTRIES _5 Lebanon.5 Jordan.6 Turkey.6 Iraq.6 2. POPULATION AT RISK _6 3. PRINCIPAL HUMANITARIAN NEEDS _7 Syria and host countries 7 4. HUMANITARIAN RESPONSE _11 In Syria 11 In neighbouring countries 12 International responses and the spanish response 12 5. STRATEGIC POSITIONING _13 5.1. Strategic goals for the context 13 5.2. Intervention countries 14 5.3. Aid programme priorities 14 5.4. Main partners in the intervention 15 6. ACCOUNTABILITY GRID _15
Humanitarian Strategy, 2020-2021
The crisis in Syria
—
The Spanish Agency for International Development Cooperation (AECID), attached to the Ministry of Foreign
Affairs, the European Union and Cooperation (MAUC), is the principal management body for Spanish Cooperation.
Humanitarian action is a major priority for this body in its efforts to combat poverty and promote sustainable
human development.
AECID’s Humanitarian Action Office (HAO), created in 2007, is responsible for managing and implementing
Spain’s official humanitarian action, based on the principles of humanity, impartiality, neutrality and independence.
The HAO works within the framework of the guidelines set out in Spanish Cooperation’s Fifth Master Plan (2018-
2021), and of the Humanitarian Action Strategy (HAS) for 2019-2026. The HAS is the cornerstone of Spain’s
humanitarian action and follows an approach based on rights; gender, age and diversity; disaster risk prevention,
reduction and reporting; resilience, do-no-harm and conflict sensitivity; and concern for the environment.
Furthermore, AECID has undertaken different commitments on the quality of assistance, following the World
Humanitarian Summit of 2016 and the adoption of the Grand Bargain, in the same year.
To enhance the effectiveness of AECID’s response to major crises, humanitarian strategies have been established
for priority geographical contexts in line with the humanitarian response plans of the UN and the EU. These
strategies will be complementary to any applicable Country Partnership Framework.
The HAS, which draws on the lessons learned from planning AECID’s humanitarian responses in 2018 and 2019,
addresses the main needs identified in this context by targeting specific sectors.
The gender, age and diversity-based approach adopted in the HAS must be mainstreamed into AECID’s actions.
For this reason, the Agency will strive to ensure that in the projects it supports, the assistance, resources and
services provided reach the entire target population, according to their specific needs, roles and capacities, paying
special attention to women and children. Another priority will be that of preventing and responding to gender-
based violence during humanitarian crises.
AECID will thus support projects that incorporate the gender markers of the Inter-Agency Standing Committee
(Codes 2a and 2b1) and of the EU Directorate-General for Civil Protection and Humanitarian Aid Operations
(DG ECHO) (Mark 2)2.
As regards the other horizontal priorities and approaches adopted by Spanish Cooperation, priority will be given
to actions having an inclusive approach and results-based management, together with the effective mainstreaming
of environmental sustainability, cultural diversity and human rights. The provision of cash assistance and vouchers
1 IASC Gender Marker Overview: Available at:
https://interagencystandingcommittee.org/system/files/iasc-gam-information-sheet.pdf
2 ECHO Gender-Age Marker. Available at: https://ec.europa.eu/echo/files/policies/sectoral/gender_age_marker_toolkit.pdf
3
will be incorporated into humanitarian action as
a key element of the response, and unmarked aid
and support for local actors will be promoted as
far as possible.
Lastly, it is important to take into account that
the response to the Covid-19 pandemic and to its
impact on humanitarian contexts could represent
a significant proportion of the contributions
channelled through international organizations
and NGOs. This will affect the activities that are
funded in the different sectors, and it is likely that
considerable attention will need to be paid to
actions that contribute to the fight against infection with the virus and its consequences. These questions will be
addressed in line with Spanish Cooperation’s Joint Response Strategy for the Covid-19 crisis, which is based on
the following priorities: save lives and strengthen health systems; protect and recover rights and livelihoods and
reinforce the capacities of vulnerable people; preserve and transform socioeconomic systems, rebuild production
industry, and reinforce democratic governance, placing people at the centre of our action.
1. CONTEXT
SYRIA3
EVOLUTION OF THE WAR AND OUTLOOK
FOR THE FUTURE
In March 2020, the Syrian conflict entered its ninth year, marked
by changes in territorial control. The Syrian government has
consolidated its control over the centre of the country. In the
northwest, the situation has deteriorated in Idleb province,
threatening the three million-plus inhabitants of that region. In
the northeast, the Turkish incursion in October 2020 provoked
the displacement of 220,000 people4, half of whom decided to
return to their places of origin, while the remainder continued
to stay in private homes and collective accommodation.
Another 710,000 displaced people had already been in this area
before the offensive, and a population of 1.8 million needed
humanitarian assistance.
Overall, the movement of some 1.3 million people took place in Syria during the first nine months of 20195.
Of these, 341,000 were spontaneous returns (mostly persons who had been internally displaced, because
from January to October only 81,677 Syrian refugees returned home). Although 100,000 were expected to
return by the end of 2019, this figure is far from the 250,000-500,000 people foreseen by UNHCR in its
2019 Humanitarian Response Plan6. Furthermore, UNHCR has reported that the conditions for a dignified,
3 The data provided in this section were obtained from the following sources: https://syria.liveuamap.com/, the UN
Humanitarian Needs Assessment Programme UN and the Spanish Diplomatic Information Office.
4 Northeast Syria Crisis. Emergency Response Plan. October-December 2019.
5 OCHA. Humanitarian Update. Syrian Arab Republic. Issue 06 |14 November 2019
6 UNHCR. March 2019. Regional Operational Framework for refugee return to Syria. Regional Durable Solutions
4
safe and sustainable return to Syria do not yet exist and that the vast majority of Syrian refugees have no
intention of returning in the next twelve months7.
Prominent items in the political agenda include the Geneva process, supported by the United Nations, and the
European Union’s organisation of the 3rd Brussels Conference on ‘Supporting the future of Syria and the region’,
in 2019.
In summary, the civilian population continues to face a protracted protection crisis characterised by indiscriminate
and disproportionate attacks which impact on women and children in particular.
NEIGHBOURING COUNTRIES8
Of the 6.65 million Syrian refugees recorded by UNHCR in 2018, 5.6 million were still in the region, mainly in the
neighbouring countries of Turkey, Lebanon and Jordan.These aggregate figures mean that the situation in Syria has
provoked the largest refugee crisis since World War II.
The living conditions of the Syrian refugee population in these neighbouring countries continues to
deteriorate, due to social, economic and legal challenges. Their presence is overloading the existing
infrastructure and the already limited resources, generating social tensions between the refugee population
and host communities.
LEBANON.
This country is experiencing severe socio-economic instability,
and currently hosts the highest number of refugees per capita in
the world. A total population of 0.92 million Syrians are officially
present, but the true figure may be up to 1.5 million, according to
Government estimates. Although the country closed its borders
to the Syrian refugee population in 2015 and tightened restrictive
measures, limiting the renewal of residence permits, during 2016
and 2017, the protection space improved when the requirement
to “promise not to work” was withdrawn and when the fee that
some categories of Syrian refugees had to pay to renew their
legal residence ceased to be applied. However, since early 2019,
the protection environment has again deteriorated, with forced
displacement, deportations and demolitions in refugee camps9.
Moreover, the number of Syrian refugees legally resident in
Lebanon continues to decline and up to 75% do not have legal
refugee status10, which affects their protection and limits their access to basic services, leaving them in an
irregular situation and without prospects for integration.
7 UNHCR. March 2019. Regional Operational Framework for refugee return to Syria. Regional Durable Solutions
8 UNHCR. Global Trends. Forced displacements in 2018. UNHCR. Syria Regional Refugee Response, Inter-agency information
sharing portal. Available at: https://data2.unhcr.org/en/situations/syria 25.06.2019. Lebanon Crisis Response Plan 2017-
2020 (2019 update). Jordan Response Plan 2019.
9 SIRF recommendations pertaining to the Syria crisis for the 74th session of the UNGA.
10 ECHO. HIP 2020, p. 5
5
JORDAN.
According to official records, there are 654,000 Syrian refugees in
Jordan, a figure that has remained fairly stable since the closure of
the border in 2016. 81% of this population are living outside refugee
camps, and a significant number are living in the northern regions
bordering Syria and in the capital,Amman.According to the Jordanian
government, 15.7% of the Jordanian population is living in poverty.
Thanks to the commitments made under the Jordan Compact, Jordan
has made progress in issuing work permits for Syrian refugees, the
vast majority of whom are working in the agriculture and construction
sectors. In addition, Jordan has worked in conjunction with UNHCR
to regularise the situation of Syrian refugees in urban areas, although
some still lack access to legal documentation. Furthermore, between
12,000 and 14,000 vulnerable people are still trapped in the Rukbán
camp, a border area between Jordan and Syria.
TURKEY.
UNHCR has recorded the presence of 3.6 million Syrian refugees
in the country, less than 10% of whom are living in refugee camps.
Since the outset of the Syrian crisis, the Turkish position has been to
facilitate protection and assistance for refugees, allowing them access
to education, health services and employment. However, since the end
of 2017, Istanbul and other Turkish regions are no longer registering
new refugees. In October 2019,Turkey launched a military operation
in northeast Syria seeking, among other objectives, to establish a
“safe zone”. Any future offensive in the Idleb region could provoke a
massive new wave of refugees towards eastern Turkey.
IRAQ.
In 2019, about 234,000 Syrian refugees, mostly ethnic Kurds, were still
registered in Iraq.At least 14,000 of these people arrived in the wake
of the offensive in eastern Syria. Since 2016, UNHCR has recorded
31,500 returnees, the highest proportion of all the neighbouring
countries. In addition, tens of thousands of Iraqis continue to reside
in displacement camps in northeast Syria.
2. POPULATION AT RISK
This strategy recognises ten population groups in situations of particular
risk and in greatest need11: 1) displaced persons; 2) persons hosting
displaced people; 3) spontaneous returnees; 4) the Palestinian refugee
population; 5) undocumented persons; 6) persons living in areas
contaminated by explosives; 7) persons with chronic illnesses and injuries; 8) persons in areas where control has
changed or that are difficult to access; 9) persons with disabilities; 10) persons with extreme socioeconomic difficulties.
Among these groups, the following profiles or subgroups present greater vulnerability and require specific
consideration: children; young adolescents; women and girls; the elderly.
11 Op cit HNO 2019
6
3. PRINCIPAL HUMANITARIAN NEEDS
SYRIA AND HOST COUNTRIES
SYRIAN POPULATION 18.3 MILLION PEOPLE [1]
Syrian population within the country Internally displaced persons: 6.2 million
in urgent need of various forms of Displaced persons in ‘last resort’ sites: 0.9 million
humanitarian assistance:
Spontaneous returnees in 2018: 1.4 million
11.7 million12.
In urgent need of humanitarian Population living in areas of difficult access: 1.1 million
assistance: 5 million.
Total number with humanitarian
Maghreb: 35.713
needs in Syria and other countries in
the region: 17.3 million Syrian refugee population registered Egypt: 129.159
in countries of the region: 5.6 Jordan: 654.266
million, with an estimated 9.5% in Lebanon: 918.974
refugee camps. Iraq: 234.831
Turkey: 3.684.982
Persons living in areas affected by hostilities and/or contaminated by explosives: 10.2 million
SIRIA LÍBANO JORDANIA
Human Development Index [2]
0.536 (ranking 153) 0.757 (ranking 82) 0.735 (ranking 94)
Vulnerability Index [3]
7.8 out of 10 6.1 out of 10 6.3 out of 10
Conflict Index [4]
3 out of 3 3 out of 3 0 out of 3
Crisis Index [5]
3 out of 3 3 out of 3 3 out of 3
[1] UNDP, 2018: “Human Development Report 2018
[2] UNDP, 2018: “Human Development Report 2018
[3] INFORM 2019: Index for Risk Management - INFORM (September 2019)
[4] ECHO, 2019. Crisis Assessment Index Rank 2019
In Syria, 11.7 million people are in urgent need of various forms of humanitarian assistance13, including 5.9
million women, 5.8 million men, 5 million children, 500,000 older people and 3 million persons with some type
of disability.
Moreover, 6.2 million people have been displaced within the country’s borders, meaning that Syria has the second
highest level of internal displacement in the world14.
The Palestinian refugee population in Syria consists of 438,000 people15, of whom 95% are in sustained need of
assistance. In addition, there are 300,000 Iraqi refugees in Syria.
12 This figure from the 2019 Humanitarian Response Plan for Syria is cross-sectoral and, therefore, may be exceeded in
some humanitarian sectors.
In November 2019, OCHA estimated that the number of people in need had fallen to 11.06 million, that 6.1 million persons
were displaced and that there were 5.5 million refugees in the countries of the region. However, these figures are based
on the HRP 2019 statistics for Syria.
13 In 2018 the HRP estimated this figure at 13.1 million people.
14 UNHCR. Global Trends. Forced displacements in 2018.
15 UNRWA. Humanitarian Snapshot, July 2019.
7
Within Syria, 5 million people are in acute need
of assistance to withstand the most severe forms
of deprivation in terms of personal security, basic
rights and living conditions.
38% of the people in need are currently in areas
not controlled by the Syrian authorities, while 62%
in areas under Government control. At present,
up to 75% of these persons can be assisted with
interventions conducted from within Syria16.
The regions with the highest numbers of persons
with humanitarian needs are Aleppo (2.54 million),
Rural Damascus (2.05 million), Idleb (1.63 million), Damascus (0.71 million) and Dar’a (0.68 million). The regions
with the highest proportions of persons in acute need are Deir-ez-Zor (96%), Damascus (66%), Dar’a (63%), Idleb
(56%) and Rural Damascus (48%).
The neighbouring countries have registered 5.6 million refugees from Syria. In Jordan, the areas with the highest
number of refugees are Amman, Mafraq, Irbid and Zarqa; in Lebanon, the Bekaa Valley, northern Lebanon, Beirut
and southern Lebanon17.
The main humanitarian needs by sector18, in Syria and bordering countries, are described below:
• Protection
In Syria, 13.2 million people are in need of protection (6.5 million men, 6.7 million women, 5.5 million children and
0.6 million older persons).
On the one hand, long-term displacement places families in difficult situations, forcing them to resort to negative
survival strategies. On the other, 10.2 million people are living in areas considered dangerous due to the magnitude
and scale of contamination by explosives. These factors, together with the lack of continuity of basic services, is
making a lasting solution for their return currently impossible.
Gender-based violence (GBV) continues to undermine the rights of women and girls, both in Syria and in host
countries, especially adolescent girls, inside and outside their homes. GBV is mainly expressed in forms such as sexual
harassment, early and forced marriage and domestic violence19.
Multiple risks are associated with the absence of protection for children, including exposure to violence, poverty, lack
of access to basic services and serious violations of their rights.
Finally, the association between a lack of civil documentation, restrictions on movement and the absence of rights to
property and land is a major obstacle to the protection of displaced persons and refugees.
16 Response and Access Dynamics within Syria. OCHA May 2019
17 UNHCR http://data.unhcr.org/syrianrefugees/regional.php 19.09.2019
18 The sectors addressed in this document are those contained in the Humanitarian Response Plan for Syria 2019.
19 The Humanitarian Needs Overview includes within the term domestic violence both that which is exercised by the partner
and other forms of domestic violence against women and girls. In the present Strategy, this broad terminology is employed
due to the impossibility of disaggregating data for the different types of violence, despite the fact that Spanish authorities
and the IASC itself differentiate these terms. See “Guidelines for Integrating Gender-Based Violence Interventions in
Humanitarian Action”, p. 322. Available at:
https://interagencystandingcommittee.org/system/files/2020-09/IASC%20Guidelines%20for%20Integrating%20Gender-
Based%20Violence%20Interventions%20in%20Humanitarian%20Action%2C%202015.pdf.
8
• Health
In Syria, 13.2 million people (9.5 million women and 3.7 children) are in need of health-related humanitarian assistance.
46% of the country’s health infrastructure has been affected by the hostilities and its functionality is greatly
reduced. 37% of the affected population require sexual and reproductive, neonatal and child health services and
41% of the adult population need treatment for one or more non-communicable diseases.
Medical practice is highly dangerous in Syria, where
health facilities and personnel are under continual
attack. In 2018, there were 142 attacks on medical
facilities, and from January to August 2019, another
61 attacks took place20.
Sustaining basic health services is a challenging task
throughout the country, due to increased needs
and the loss of capacities in areas such as human
resources, infrastructure and referral systems.
Prenatal, child and maternal care services, attention to non-communicable diseases and mental health are the
areas in greatest demand. In addition, the requirements of physical and mental health services for persons with
disabilities require particular attention.
In the countries of the region, in addition to the needs of primary, secondary and tertiary health, of sexual and
reproductive health and of the response to communicable and non-communicable diseases, the Syrian refugee
population suffers from mental health and psychosocial problems due to displacement and to the effects of the war.
Access to health services is limited by the capacity of the host countries and the refugees’ own economic capacity.
• Nutrition, food security and agriculture
Nine million people in Syria have food security and agriculture-related needs (4.7 million women, 2.1 million older
adults and 2.7 million children). Displacement, the loss of livelihood and reduced food production and processing
capacity are the main causes of the needs in this sector.Additionally, food production was hit by the worst drought
in 30 years during 2017 and 2018.
In Syria, 4.7 million people require nutritional support services, especially in the northwest and northeast of the
country. Of these people, 3.1 million are under 6 years of age and 1.6 million are pregnant or lactating women.The
latter figure is double that of the previous year.
In the host countries, unemployment, inflation, the lack of livelihood and environmental degradation all undermine
the food security of the most vulnerable sectors of the refugee population. In Lebanon21, two million people
need food aid, and in Jordan22 14% of the Syrian refugee population are food insecure. 64% live in situations of
vulnerability, in many cases dependent on food aid.
• Water, sanitation and hygiene (WASH)
In Syria 15.5 million people have needs related to water, sanitation and hygiene: 6.2 million are children and 6.2
million are in acute need. Access to safe water is insufficient. 70% of the sewage systems are unserviceable and
10% of waste is deposited without any control, threatening the outbreak of communicable diseases.
20 Health cluster. Syrian Arab Republic Attacks on health care in Syria 1 Jan - 31 Aug 2019.
21 Lebanon Crisis Response Plan 2018-2020. 2019 update.
22 Comprehensive Food Security Monitoring Exercise (CFSME), done by WFP in 2018 in Jordan. JRP 2019
9
The provision of WASH services must be maintained in displaced-persons camps and temporary shelters, while
efforts are made to seek more sustainable solutions. In host countries, access to WASH systems continues to
be a problem for the refugee population living in camps, especially in terms of the cost and reliability of services.
• Early recovery and livelihood
In Syria 8.7 million people have needs in this sector. Of this population, 3.6 million are minors.
It is estimated that 83-89% of Syrians live below the poverty line, and only half of the potential workforce have
access to employment on a sustained basis. 46% of returnees have needs associated with access to basic services,
39% with assistance in livelihoods and 31% with access to health services.
There is only limited access to energy. About 50% of the Syrian population have access to electricity for less than
12 hours a day, which impacts on the provision of basic social services (such as the provision of drinking water)
and essential health services. In Syria, questions such as basic social services, livelihoods, security and community
infrastructure are crucial for social cohesion.
Moreover, despite improvements regarding work permits for Turkey and Jordan, the Syrian refugee population in
these countries has limited access to employment and, in some cases, to essential basic services such as health
care. In Lebanon, their access to employment is restricted to certain sectors.
• Education
In Syria, six million people have education needs: of
these, 5.9 million are aged 5-17 years.
40% of the schools were damaged or destroyed by
recurrent direct attacks during the conflict. Only
31% of returnees of secondary school age are
enrolled in schools, which is indicative of insufficient
educational services in the areas of return.
In their communities, young people and adolescents
have few opportunities and limited access to
learning, which results in high rates of youth unemployment. Girls are often forced into negative coping strategies,
such as early marriage, due to the lack of skills training opportunities and the high rates of unemployment in Syria
and neighbouring countries.
• Shelter and non-food items
In Syria, 4.7 million people have shelter needs, while 4.4 million require non-food aid, although the latter figure is
6% lower than in 2018. Moreover, the situation in some areas, such as the northwest, is deteriorating. The people
in need in this category include returnees, internally displaced persons, Palestinian refugees and host communities.
The general decline in the number of people in need reflects a certain improvement in the functioning of markets
in some areas, especially where hostilities have
subsided.Access to non-food assistance is generally
more stable, with only 14% of communities
reporting a deteriorating situation compared to
24% in 2017. However, needs persist for persons
who are newly displaced and require general or
seasonal assistance.
In the host countries, shelter and non-food aid
continue to be a necessity. In the formal and
informal camps where refugees are housed, living
conditions are harsh and better access to drinking
water and improved sanitation are needed.
104. HUMANITARIAN RESPONSE
IN SYRIA
To date, humanitarian assistance in Syria has been provided, on the one hand, via direct routes from Damascus23
and other hubs established in regions controlled by the regime; and, on the other, via cross-border operations
from neighbouring countries (Turkey, Jordan and Iraq), under the mandate of UN Security Council resolutions
(No. 2165 in 2014 and its subsequent renewals, the latest of which was No. 2504 in 2019)24. Cross-border
operations in Jordan have been suspended since the change of control of the southwestern Syrian region in 2018.
The complexity of the necessary response to humanitarian needs in Syria has prompted the ‘Whole-of-Syria’
approach25 created by the United Nations to integrate the operations of humanitarian actors within Syria with
cross-border operations from Turkey, Jordan and Iraq within the same operating framework, thus ensuring
greater transparency and effectiveness. This approach is complemented by a document on humanitarian needs
(the Humanitarian Needs Overview26), together with the Humanitarian Response Plan (HRP)27 and a UN
coordination structure made up of a Regional Humanitarian Coordinator operating from Amman, coordinating
the entire HRP; a deputy based in Turkey, who coordinates cross-border assistance from that country; and
a Humanitarian and Resident Coordinator for Syria, based in Damascus, who specifically coordinates all
humanitarian response that is delivered from Damascus and the areas under Syrian government control. This
approach is considered the most appropriate means of providing the Syrian population with a coordinated,
sustained, efficient and principled response.
Operational limitations
Access restrictions and insecurity represent a major challenge to the humanitarian organisations operating
in Syria from the different hubs, as regards protecting civilians, including humanitarian personnel, and meeting
humanitarian needs.
Since 2018, there have no longer been besieged areas in Syria, and access from Damascus to areas controlled
by the Syrian government has eased, and the number of persons with humanitarian needs residing in hard-to-
reach areas has fallen to 1.1 million28. Nevertheless, quality, timely and sustained access remains difficult, and
organisations continue to suffer administrative obstacles, limitations to movement and difficulties in registering
their presence and activities in the country.
Cross-border access is also limited at times, among other causes due to the sporadic closure of designated border
points, the removal of medical supplies from convoys or the denial of authorisations to operate. In addition,
interference by armed forces continues to be a challenge.
According to OCHA, in northeast Syria, 24% of the population in need are in areas with low quality of access and
32% are in areas with moderate access; in the northwest, 32% of the population in need are in low-access areas
and 53% are in areas with moderate access. In the areas covered by within-Syria assistance, 3% of the population
live in low-access areas and 12% in moderate-access areas.
23 The UN estimates that 8.7 million people are in humanitarian need in areas under government control. Security Council,
Adopting Resolution 2449 (2018), Authorizes One-Year Extension of Cross-Border Aid Deliveries Targeting 13 Million in
Syria. https://www.un.org/press/en/2018/sc13620.doc.htm
24 Under Resolution 2504 (2020), cross-border assistance is extended for a period of six months and two border points are
closed: Al-Ramza with Jordan and Al-Yarubiya with Iraq, pending the next review in July 2020.
25 Whole of Syria https://www.humanitarianresponse.info/en/operations/whole-of-syria
26 OCHA, 2019: “Humanitarian Needs Overview 2019”.
27 Op cit HNO 2019
28 In contrast with the 2.7 million recorded in late 2017. HNO 2019. OCHA.
11Insecurity is another challenge facing humanitarian actors in this crisis. One instance of this was the Turkish
incursion on 9 October 2019, which caused major levels of displacement, required the evacuation of humanitarian
personnel and impeded safe humanitarian access. In the northwest, hostilities continue to generate casualties and
restrict access. The deliberate targeting of hospitals, schools and civilian infrastructure remains a serious concern
in this area.
Finally, we note that humanitarian and stabilisation operations in areas not controlled by the Syrian government
have maintained a constant level of coordination, mutual assistance and respect for humanitarian principles during
the crisis, despite the numerous challenges that have arisen.
IN NEIGHBOURING COUNTRIES
In response to the humanitarian and resilience
needs of the Syrian refugee population and of their
host countries, the Governments of these countries,
together with UN agencies, donors, the World Bank
and international NGOs, have prepared national
and regional response plans. One such is the
Regional Refugee and Resilience Plan 2019-202029,
which includes humanitarian, resilience and macro-
financial support.The Governments of Jordan30 and
Lebanon31 have integrated their national response
plans into this regional plan, as a coordinated and
comprehensive response.
INTERNATIONAL RESPONSES AND THE SPANISH RESPONSE
In 2018, UN calls for response were 65% met32. Spain fulfilled the commitments made at the London Conference
in 2016 and at the Brussels Conference in 2017 and 2018. The 2018 commitment to allocate eight million euros
was also exceeded; thus, a total of €13.72 million was allocated by AECID and decentralised cooperation agencies
to humanitarian and development assistance33.
At the 3rd Brussels Conference on Syria and the Region, in March 2019, the international community pledged
to contribute seven billion dollars for humanitarian, resilience and development activities in 2019 and a further
$2.38 billion for 2020 onwards. In 2019, the HRP for Syria required $3.3bn to provide multi-sector assistance to
11.7 million people within the country, while the International Committee of the Red Cross (ICRC) requested
€231.9 million in its 2019 appeal for this crisis (€168.3 million for Syria; €41.9 million for Lebanon and €21.7
million for Jordan).
29 3 RP: Regional, Refugee and Resilience Plan 2018-2019 in response to the Syria crisis, available at:
www.3RPSyriaCrisis.org
30 Jordanian Ministry of Planning and Cooperation / United Nations: “Jordan Response Plan 2018-2020”:
http://www.jrpsc.org/
31 Government of Lebanon / United Nations: “Lebanese Crises Response Plan 2017-2020”:
https://reliefweb.int/report/lebanon/lebanon-crisis-response-plan-2017-2020-2019-update
32 Financial Tracking Service https://fts.unocha.org/ 02.07.2019
33 Supporting Syria and the region. Post-Brussels Conference Financial tracking. Report six. September 2018
(€13.72 million, of which €9,1 million was from AECID (€7 million from the HAO, €0.82 million from the Directorate for
Cooperation with Africa and Asia (DCAA) and €1.29 million from its NGO Dept.) and €4,6 million from the Autonomous
Communities of Aragon, Andalusia, Baleares, Catalonia, Extremadura, Galicia, Castilla y León, Madrid, Navarre, Basque
Country and Valencia).
12At this recent international conference on Syria, Spain announced its commitment to provide €84.7 million in
2019 (€76.2 million34 for the “II Turkey Facility” and €8.5 million35 in humanitarian and development assistance,
between AECID and the Autonomous Communities) and €3 million in humanitarian assistance and development
in 2020, also between AECID and the Autonomous Communities.
5. STRATEGIC POSITIONING
In recent years, the crisis in Syria and Iraq and neighbouring
host countries has been a priority issue for AECID, as
reflected in the elements of its humanitarian action budget
assigned to this context. During the period 2016-2018,
AECID disbursed an annual average of €7.8 million36 in
humanitarian assistance in the region. These funds were
mainly channelled via international organisations within the
United Nations system, the ICRC and, to a lesser extent,
Spanish NGOs.
During the next two years, AECID will continue to focus on
this crisis, adapting its budget effort accordingly.
5.1. STRATEGIC GOALS FOR THE CONTEXT
The context strategy for the Syrian crisis has four strategic goals (SG):
SG1. Promote humanitarian diplomacy to foster respect for and the application of international humanitarian
law (IHL); protect civilians and infrastructure; improve the quality and permanence of access; assist persons
in need, in accordance with the HRP; promote compliance with Resolution 2286 on medical care in armed
conflicts.
SG2. Respond quickly and flexibly to critical situations and emergencies.
SG3. Provide a humanitarian response that has a gender, age and diversity focus and in which humanitarian
protection is the main or cross-cutting objective.
SG4. Improve access to basic health services and support the livelihoods of the most vulnerable sectors of
the Syrian population affected by the conflict.
The first of these goals requires us to continue seeking to influence international forums, through humanitarian
diplomacy, to achieve progress on the following key issues: respect for and application of IHL; improve the quality,
timeliness and permanence of access; assist vulnerable populations according to the needs reported in the HRP;
protect civilians and their facilities; promote compliance with UNSC Resolution 2286 (2016)37 on medical care in
armed conflicts. In addition, seek to achieve faster and clearer licences for humanitarian exemption from sanctions.
The second goal is to provide a rapid, flexible response, in coordination with other donors, to the critical
situations and emergencies that the Syrian conflict continues to generate.
34 According to the EU, the €76 million commitment for the facility is fully reflected in 2019, even if it is disbursed over
several years.
35 Of which AECID will provide €6.5 million, approximately (by the HAO, DCAA and NGO Dept.) and the Autonomous
Communities another €2 million, approximately.
36 In addition to funds from the HAO budget, this figure also reflects the activation of emergency agreements and
humanitarian agreements.
37 UN Security Council, 27 April 2016. http://www.spainun.org/2016/05/el-consejo-de-seguridad-adopta-la-resolucion-2286-
sobe-asistencia-medica-en-conflictos-armados/
13The third is to provide a humanitarian response that coherently integrates a gender, age and diversity
focus, promoting the use of gender markers in decision-making, and to ensure that its assistance integrates
humanitarian protection, either as the principal element or as part of a cross-cutting approach.
The fourth is to improve access to basic health services and livelihoods for the most vulnerable sectors of the
Syrian population affected by the conflict.
Finally, in response to Spain’s commitments made as part of the Grand Bargain and considering the EU policy of
increasing the provision of humanitarian assistance through cash transfers, the cash-transfer modality will be
promoted in humanitarian assistance in the context of the crisis in Syria.
5.2. INTERVENTION COUNTRIES
The priority countries for intervention in this crisis during 2020-2021 will be Syria38 and Lebanon. Most of our
humanitarian response will be concentrated in Syria, applying the “Whole of Syria” approach to serve people in
need throughout the country. In Lebanon, there will be less involvement, although this area is also one for priority
response due to the high number of Syrian refugees it hosts and to the fragility of the political situation, which makes
this a high-risk country39. In Jordan, where risk indices are lower and the authorities have shown willingness to host
and even integrate the Syrian refugee population, AECID’s support for protection and resilience-building in the host
communities will take a development approach, making use of the financing instruments available for this purpose.
5.3. AID PROGRAMME PRIORITIES
For 2020 and 2021, our strategic planning in response to the Syrian crisis will focus mainly on the following priorities40:
A multisectoral response to critical situations and emergencies will prioritise the use of specific
instruments that enable humanitarian actors to be flexible in their attention to critical humanitarian
needs and emergencies in Syria.
In humanitarian protection, actions such as: improving the provision of quality, integrated
protection services; promote international human rights; support those who are most vulnerable,
including persons with disabilities, and afford protection to minors (including case management,
psychosocial support and mental health); prevent and address gender violence; facilitate access to
civil documentation and legal aid.
Health assistance will focus on the provision of essential health services for vulnerable people,
reproductive and emergency obstetric health, and mental health and psychosocial support. Where
required and as circumstances permit, the minor rehabilitation of health facilities for humanitarian
purposes will be supported.
With respect to livelihoods, actions such as41 enhancing access to livelihoods and creating opportunities
for income generation in the short term, including paid work, supporting small businesses and providing
skills training; improve social cohesion at the community level, with activities aimed at strengthening
community initiatives that promote participation and reconstruction of the social fabric.
In addition to the above, the use of cash transfers will be promoted in sectors where this option is relevant and
when the conditions to do so are present.
All activities aimed at reversing long-term vulnerabilities of conflict victims will be guided by basic humanitarian
principles.
38 Cross-border actions may be included.
39 Global Risk index 2019
40 Priority actions are based on the 2019 Humanitarian Response Plan for Syria.
41 Ídem
145.4. MAIN PARTNERS IN THE INTERVENTION
Humanitarian efforts will be channelled and delivered via specialised humanitarian partners of the UN system, the ICRC
and humanitarian NGOs.These partners will be selected in accordance with criteria of sectoral specialisation, geographic
presence and execution capacity, as called for in the peer review conducted by the Development Assistance Committee
in 2015 and in accordance with the commitments of the Grand Bargain. In all respects, criteria of transparency and
competitive involvement will be applied.
During the coming two years, aid will be more directly localised, with finance from the Humanitarian Common Funds
and, when possible, through the direct financing of those local actors that have a comparative advantage in the priority
sectors for this strategy.
6. ACCOUNTABILITY GRID
INDICATORS42
Final annual budget disbursed in the context of Syria.
Final annual budget disbursed by sectors.
Persons benefited annually by interventions.
GENERAL Net annual budget transferred by cash
Annual budget disbursed in interventions with gender markers 3 and 4 (IASC) or 2 (ECHO).
Net annual budget transferred through vouchers.
Annual budget disbursed to local organisations directly or through a single intermediary, disaggregated.
Victims of GBV who have received assistance.
Minors who have received psychosocial assistance.
Unaccompanied minors who have received alternative care and protection.
PROTECTION
Persons who have benefited from support in documentation and/or in voluntary repatriation processes.
Persons who have received awareness-raising programmes, or been informed of and/or trained in
international humanitarian law.
SECTORAL MULTISECTORAL Persons assisted through the Syrian Humanitarian Fund.
Persons receiving health care.
HEALTH Trained health professionals and/or community agents.
Health centres functioning with minor rehabilitation and/or complete.
Persons receiving livelihood support.
LIVELIHOOD Persons benefiting from social cohesion support.
42 Data disaggregated by sex will be provided wherever available.
15Catálogo General de Publicaciones Oficiales: https://publicacionesoficiales.boe.es © De esta edición: Agencia Española de Cooperación Internacional para el Desarrollo Av. Reyes Católicos, 4 Tel. +34 91 583 81 00 NIPO online: 109-20-044-7 28040 Madrid, España www.aecid.es
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