Country Assistance Strategy
Islamic Republic of Iran

1. NATIONAL CONTEXT

1.1. Socio-economic and humanitarian evaluation

The Islamic Republic of Iran has an area of 1,648,000 sq. km, with a population of some 69 million. The annual population growth rate is 3.6%, the life expectancy at birth 68.5 years and the adult literacy 69%. The Government spends 1.5% of the GDP on health and 90% of the popualtion has access to safe water. The infant mortality rate is 33 per 1,000 live births.

The international image of the Islamic Republic of Iran continues to improve with the development of closer links with the European Union, Far East and neighbouring countries. Khatami’s election as President in 1997 demonstrated popular backing for a more conciliatory approach to the west.

Tensions with Afghanistan and the newly revived conflict between India and Pakistan dominate Iran's regional perspective, but the Government's approach to the Gulf states is beginning to pay off in more positive and closer relations. Relations with the US also seem to be slowly improving.

The recent increases in prices on the international oil market should give a well-needed boost to the economy, but the country is still under pressure to meet its external debt obligations and struggles with rising domestic prices and increasing unemployment. Due to the economic situation, the Government has been forced to re-negotiate and re-schedule its external debt payments and search for additional loans. In this it has been successful and should, therefore, manage to pay some USD 4.5 billion in principal repayments this year. The economy shrunk by 2.3% last year and this is expected to continue during the current period. The annual inflation rate exceeds 20%. The unemployment rate of the active population is estimated to approximate 30%.

1.2. Vulnerability analysis

Iran is located in a highly disaster prone area with a pattern of frequent earthquakes, floods and landslides. During this decade, major disasters in Gilan, Zanjian, Khorasan and Shiraz have resulted in the loss of tens of thousands of lives, injured many more and caused serious damage to the infrastructure of the affected areas which has had a major impact on the economy. Following the series of destructive earthquakes particularly during the seventies and nineties, there was more earthquake resistant buildings constructed and rehabilitated.

The region remains unstable with an extreme Taliban government in Afghanistan and a repressive regime in Iraq. Iran was at war with Iraq for eight years in the 80s causing the deaths of thousands and nearly slipped into war with Afghanistan in 1997 over the killing of its diplomats in Mazari Sharif. Internally, political developments may still be unpredictable.

The country hosts the largest refugee population in the world, spontaneously scattered in major cities and provinces throughout the national territory. After a massive influx from neighbouring countries during the past two decades, there are currently some 2.1 million refugees, most of them from Afghanistan (1.4 million) and Iraq (580,000), receiving assistance from various governmental and non-governmental organisation.

1.3. Analysis of the funding and assistance/co-operation environment

Apart from the UN system, only a handful of NGOs are represented in Iran, most of them focused on refugee assistance (MSF the biggest), co-ordinated by the International Consortium for Refugees in Iran (ICRI). No representation exists of ECHO and the World Bank. Hence, funding must be sought through PNSs and other international sources. Some embassies have emergency funds for small-scale assistance in the case of a disaster. IRCS has not been able to build up active relations with a donor community during the past decade.

2. NATIONAL SOCIETY PRIORITIES

The Iranian Red Crescent Society (IRCS) is a key disaster response player in the country. It also undertakes disaster preparedness activities and runs a first aid training programme. It has two main priorities for the coming years. Firstly, it wishes to put in place better planning and management systems within the Society so that it develops its capacity to run more effective activities. Secondly, more specifically, it wishes to improve the management of its disaster response activities.

With more than 3,000 trained voluntary relief workers in about 270 branches, a vehicle fleet of more than 2,000 units, and at least one warehouse in each of the 28 provinces, the IRCS has created and maintains a national disaster response coverage that permits prompt attendance to local and provincial calamities. The IRCS, as auxiliary to the authorities, has been designated the main national relief organisation to attend victims during the first six weeks following a disaster. Nevertheless, Red Crescent assistance is normally extended far beyond this initial period.

The IRCS, the Federation Secretariat and other partners have for some time been aware of the importance of enhancing the disaster response capacities of the National Society. The IRCS also seeks an increasing level of participation in the work of the International Movement of Red Cross and Red Crescent. With this vision, the co-operation between the IRCS and the Federation was reinforced in late 1998 through the allocation of a staff-on-loan from the IRCS International Department at the MENA Department in Geneva. A resident Federation Representative was appointed to Tehran at the beginning of this year to provide a co-ordinating, facilitating and monitoring role. Through a Disaster Response Workshop, held in Iran in February, the parties mutually agreed upon the main subjects to be included in a future project.

The co-operation between the IRCS and the Federation is based on a Memorandum of Understanding, signed in 1995 and which may be reviewed in 2000.

3. PRIORITIES AND OBJECTIVES FOR FEDERATION ASSISTANCE

Federation objectives are designed around the IRCS view of its own priorities. Through the Federation Representative, it will support the Society in the process of building improved planning and management capacity on one hand and a better disaster preparedness and response programme on the other. It will also assist the IRCS in networking and forming strategic relations within and outside of the Movement.

The IRCS does not have a National Development Plan or a similar planning document that lists the capacity building priorities of the National Society. The International Federation therefore aims to provide technical, material and financial means for the IRCS to support the organisation in creating a realistic framework for its future development in accordance with relevant Federation policies and regulations. The Federation also wishes to encourage and guide the IRCS in sharing its resources and experience, especially in disaster preparedness, with neighbouring countries and elsewhere.

Based on workshops and assessments, the Federation will, together with the IRCS, find out and prioritise areas of co-operation, including training programmes, technical advice and equipment. The NS, after a substantial period of withdrawal from active external involvement, needs to build up its profile and relations with other organisations, both nationally and internationally, to facilitate access to more diversified and substantial support sources. In this respect, the IRCS is fully identified with its Millennium commitment to increase the capacity for Red Crescent action at national and international levels.

4. PRIORITY PROGRAMMES FOR FEDERATION ASSISTANCE

4.1. Disaster Response

The Federation will not be seeking funds for any ongoing disaster relief activity at this stage. However, given Iran's numerous natural disasters, it is quite possible that ad hoc appeals are made.

The IRCS is involved in two major relief operations. In July 1998, the IRCS and the Federation signed a memorandum of understanding (MoU) with the aim of implementing a reconstruction and rehabilitation programme in favour of the population affected by the earthquake which took place in the province of Khorasan in May 1997. The programme includes the construction of one Red Crescent Relief base and one dormitory in the district of Qaen, and one relief base in the district of Birjand. The programme is supported by the American, British, Canadian, German, Hong Kong, Liechtenstein and the Netherlands Red Cross. In a separate project contract (but included in the MoU), the Swiss Red Cross provides support for construction of one dormitory in Birjand and three primary schools and two health post in Qaen. The total budget of the programme, which will be completed in the autumn of 1999, was CHF 1,833,000. The Federation Secretariat co-ordinates the funding of the programme and provides advisory and technical services. The implementing responsibility lies with the National Society.

IRCS is also responsible for the Administration of one refugee camp in Shoushtar (Iraqi refugees). The main objectives are: to provide the refugees with shelter, food, health and education services, and to ensure dignity and protection for the refugees, aiming to safe repatriation. Although the main support is provided by the UNHCR through the governmental office for refugees (BAFIA), a small amount is also provided by the Canadian Red Cross. The number of refugees is approximately 5,000.

4.2. Disaster Preparedness

Strengthening of the Disaster Response Capacities of the IRCS

The objectives are:

- to strengthen the overall disaster management through a number of training courses,

- to improve the disaster response capacities through acquisition of more appropriate relief equipment,

- to upgrade the national and international telecommunications network through installation of a Pactor system and training of operators, and

- to increase resource and capacity sharing through co-operation with other countries in the region.

The joint February Disaster Response Workshop identified the need to carry out training in Disaster Management, Logistics, Warehousing & Fleet Management, Relief Health and Reporting and Evaluation. The courses will be designed with support from the Federation Secretariat. With the co-operation of the IRCS Training Centre, the Federation will impart a training of trainers (TOT) programme in all five areas. Consecutively, the IRCS will carry out the required number of courses in the different subjects, with Federation support when needed.

At the end of the two-year period, it is expected that some 650 IRCS staff at national, provincial and district levels will have standardised competence in the different subjects. After that period it is expected that the IRCS Training Department will be able to carry out further training, including refresher training, with their own means.

In order to secure appropriate curricula for the courses in Warehousing and Fleet Management, Relief Health and the identification of relief equipment needed, the Federation Secretariat needs to carry out additional assessment missions to Iran. Likewise, the Federation Secretariat needs to upgrade its 1997 assessment mission of the national and international telecommunications network of the IRCS before a plan of action, equipment, and budget can be established for the installation of a Pactor network and training of operators.

4.3. Health education and services

The IRCS has a comprehensive First Aid training programme, but is not actively involved in community based health. The interest of the National Society to enter into such programmes (and possibility in regard to responsibilities of Ministry of Health and other national institutions) has yet to be discussed.

4.4. Promotion of humanitarian values

The main objectives of the IRCS programme are:

- to disseminate the Red Cross/Red Crescent Principles and promote humanitarian values among the National Society, the public authorities and the population in general

- to reinforce the public image of the Red Crescent as the most important and effective humanitarian organisation in the country and thereby also positively conduct and support resource development programmes of the National Society.

The Federation will provide assistance where possible. In the coming months, contact will be established between the ICRC and the IRCS to jointly assess the situation and determine general frames for co-operation in dissemination and tracing programmes as from 2000. Currently, no IRCS dissemination officer exists. The Federation Representative will be involved in this process.

4.5. Institutional and resource development

The IRCS is well known and recognised as a reliable partner in disasters, but the Federation Secretariat's knowledge of the IRCS as an institution is limited. A developmental framework, clearer priorities, identified goals, functional management mechanisms and clear policy decisions regarding ID/RD issues need to be set. Effective co-operation in this field also depends on which course the National Society will take after a possible structural modification of the institution after the appointment of a new President of the National Society.

Concrete priorities and plans regarding ID/RD can therefore not be stated at this stage, until the IRCS and the Federation have established a jointly agreed plan concerning the need and purpose of a proper assessment action. The Federation will, however, explore the possibilities of using other programme implementations as entry points for the development of the IRCS.

5. NATIONAL SOCIETY ACTIVITIES CURRENTLY SUPPORTED BY DONORS, PARTICULARLY THOSE WITHIN THE MOVEMENT

According to IRCS, no other external donor is currently supporting the NS. The NS is heavily funded by the Government through a decree that provides the IRCS with 2% of all customs revenues. The NS also received considerable support in cash and properties through donations, wills, etc.

6. RESOURCE MOBILISATION STRATEGY

The donors for the Khorasan Rehabilitation Programme are American, British, Canadian, German, Hong Kong, Liechtenstein and the Netherlands Red Cross.

The presence of donor organisations in Tehran is very limited. The UN system is a potential partner and source for support, especially regarding refugee assistance (UNHCR), but the current limited contacts between the IRCS and the UN organisations has impeded joint actions. An opening in these relations is expected in the coming months. UNDP has shown interest in collaborating with IRCS DPP programmes, but the details have still to be sorted out. Embassies normally only have minor funds available for punctual disaster support, but some of them will be approached once the final version of the 2000-2001 project documents is available.

Other local funding sources relate to the Government support to IRCS and donations from the public. In either case no figures and conditions are available. As both seem rather substantial, discussions regarding possible IRCS participation in project funding should, in due course, take place.

The absence of possible international funding sources in the country and the fact that the IRCS has no proper national fund-raising activities, has created a situation where the funding for the current programmes is entirely co-ordinated by the Federation Secretariat. As substantial local funding opportunities does not seem to be developing for the moment, resource mobilisation will continue to be the task for the Secretariat and the Regional Delegation. Nevertheless, the possibilities for minor support from any of the UN agencies and financial participation by the IRCS will be on the agenda, once the project documents are finalised.

7. CRITERIA AND PROCESS FOR EVALUATING THE ASSISTANCE STRATEGY AND ASSESSING POSSIBLE RISKS

The IRCS is well accustomed to co-operation at the international level and has proved a reliable partner. It has shown enthusiasm and willingness to collaborate with the creation and implementation of a project aiming to strengthen their disaster response capacities. The future of this co-operation, however, will to some extent be tempered by any structural changes which may come about as a result in the changes at the President level.

The IRCS, assisted and supported by the Federation Secretariat and the Regional delegation, has the management responsibility of the projects. Further assessments to establish priorities for some programme areas, as stated above, are still pending.

The lack of local resource mobilisation due to absence of international funding agencies will put a heavy burden on the Federation Secretariat. Due to its close adherence to the authorities, the IRCS will have to present the programmes to the Government for approval. Both situations might have influence on the implementation of the established Assistance Strategy.

8. BUDGET OVERVIEW

STRENGTHENING OF THE DISASTER RESPONSE CAPACITIES OF THE IRANIAN RED CRESCENT SOCIETY 2000 - 2001

1. Purpose of Project

The Iranian Red Crescent Society (IRCS), in collaboration with the International Federation, has identified a need to enhance its ability to provide a more efficient and effective response system to the numerous disasters that occur in the country. Although well experienced through continuous relief operations, the National Society will need to strengthen its overall capacity through upgrading and renewing working methods and technical equipment to achieve a higher level of efficiency.

2. Summary

The IRCS seeks an increasing level of participation in the work of the International Movement of Red Cross and Red Crescent. Already a donor society, it has a further potential to increase its involvement in providing humanitarian assistance to neighbouring countries and elsewhere.

The continual occurrence of natural disasters in Iran has motivated the IRCS to strive for external support to improve its disaster management capacities. With this vision, the co-operation between the IRCS and the International Federation commenced in late 1998 through the allocation of a staff-on-loan person from the IRCS International Department to the MENA Department, initially for one year. This was soon followed by the appointment of a resident Federation Representative in Tehran from the beginning of 1999.

Through a workshop held in Iran in February 1999, the parties mutually agreed upon the main subjects, principally training courses, to be included in a future project. The IRCS has endorsed the Regional and Country Assistance Strategies, of which this project forms an integral part.

The present project, with a total budget of approximately CHF 1,600,000 is crucial for the National Society to maintain its status as the main relief organisation in Iran and achieve the goal to increase its international profile.

3. Background

3.1. Country

Geographically, the Islamic Republic of Iran (1,648,000 sq. km.) is situated in a highly disaster prone area characterised by frequent seismic activities. Only this decade, highly destructive quakes have occurred in Gilan, Zanjan and Ardabil. The last of major magnitude took place in the south-eastern province of Khorasan in 1997. In May 1999, a number of quakes in the area of Shiraz caused the loss of 28 lives and considerable material destruction.

Due to its topography and climatic diversity, the country also experiences heavy rains, often followed by sudden, devastating floods and landslides.

As a result of a massive influx of refugees from neighbouring countries during the last two decades, Iran currently hosts the biggest number of refugees in one single country.

3.2. National Society

With more than 3,000 trained volunteer relief workers in some 270 branches, a vehicle fleet of more than 2,000 units, and at least one warehouse in each of the 28 provinces, the IRCS has created and maintains a national disaster response coverage that permits prompt attendance to local or provincial calamities.

The IRCS, as auxiliary to the government authorities, has been designated the main national humanitarian organisation to attend victims during the first six weeks following a disaster. Nevertheless, Red Crescent assistance is normally extended far beyond this initial period.

The IRCS has been involved in assistance to millions of refugees coming from Iraq, Afghanistan and the newly-independent republics of the former Soviet Union, and is currently in charge of one camp for Iraqi refugees.

The National Society enjoys substantial support from its Government and the public in general.

3.3. Other Partners

Through a Memorandum of Understanding with the IRCS, a consortium of eight PNSs is currently supporting a one-year reconstruction and rehabilitation programme in Khorasan province. Other donor societies and UNDP have indicated their interest in supporting the strengthening of the NS operational capacities. It is expected that ICRC, which has recently re-established its presence in Iran, will support the IRCS in tracing, dissemination and information activities.

4. Objectives

The objectives of the project are:

4.1. to enhance and strengthen the disaster response management of the IRCS through a number of training courses and acquisition of more appropriate relief equipment.

4.2. to upgrade the national and international telecommunications network of the IRCS through the installation of a Pactor system and training of operators.

5. Project Activities

5.1. Activities to achieve objective 4.1. are:

1. training courses: training of trainers in Disaster Management, Logistics,

Warehousing & Fleet management, Relief Health, Reporting & Evaluations

2. 8 training courses in Disaster Management

3. 3 training courses in Logistics

4. 3 training courses in Warehousing and Fleet Management

5. 3 training courses in Relief Health

6. 3 training courses in Reporting and Evaluations

5.2. Activities to achieve objective 4.2. are:

1. needs assessment to determine a three-phase project for installation of a Pactor system.

2. procurement and installation of technical equipment in accordance with the established phases.

3. training of operators

6. Expected Results

The expected results of the project are:

6.1. 60 trainers/instructors at national level, multiplying through an established training

programme schedule to:

240 district branch directors, trained in Disaster Management

60 provincial Directors General and Relief Directors, trained in Logistics

120 operational managers, trained in Warehousing and Fleet Management

120 operational managers, trained in Relief Health

60 persons at different levels, trained in Evaluation and Reporting

The training programmes in some subjects will be on-going and therefore continue beyond the two-year time-frame as permanent training programmes of the IRCS.

6.2. A Federation assessment mission is required to determine the plan of action with timeframe, including the technical equipment needed to achieve appropriate national coverage and connection with the Federation Secretariat. Consecutively, the necessary number of Pactor operators will be trained.

7. Monitoring and Evaluation Arrangements

7.1. Indicators

1. Fulfilment of agreed schedules for training courses and participation of foreseen number and levels of participants.

2. Each training course includes final examination of participants.

3. Verification of installed and functioning equipment.

7.2. Monitoring and Evaluation Arrangements

1. IRCS and the Federation Representative jointly, based on the final approved project and any possible mutually agreed amendments

2. Federation Secretariat based on Progress Reports

7.3. Evaluation of this project will be carried out in the following ways:

1. Joint IRCS and Federation mid-term evaluation at the end of 2000.

2. Joint IRCS and Federation final evaluation at the end of 2001.

8. Implementation Arrangements

The IRCS, assisted by the Federation Representative in Tehran, has the management responsibility for the project. For this purpose, the creation of a small-sized operational Project Committee is needed. The assessments for the Relief Health component and the Pactor communication system will be carried out by representatives from the Secretariat. Likewise, various persons from the Secretariat are needed for the implementation of the initial training of trainers courses. The other training activities will be organised by the IRCS Training Department and the newly trained trainers, with support from the Federation Representative. Training of Pactor operators should, if possible, be made with the assistance of a local company.

9. Critical Assumptions

9.1. Initially there are no foreseen risks for the implementation of the project with the National Society, which already is fairly accustomed with co-operation at international levels. It has shown enthusiasm and willingness to collaborate with the creation and implementation of a project aiming to strengthen their disaster response capacities, which was clearly shown through the outcome of the joint IRCS and Federation Disaster Response Workshop, held in Esfahan, Iran, at the beginning of February 1999.

9.2. We must assume that the project, in due course and as an issue of co-ordination, will be presented to the authorities for final approval. Although some amendments might result from this process, this should not be seen as a risk factor.