field implementation plan 2014-15
lebanon
Biennium Plans
1. Gaza
2. Jordan
3. Lebanon
4. Syrian Arab Republic
5. West Bank
6. Headquarters Implementation Plan
This Field Implementation Plan (FIP) has been developed in accordance with the UNRWA
Medium Term Strategy for 2010-15. It articulates the field-level approaches that will guide the
work of UNRWA over the two-year period 2014-15, and the plans, activities and budgets
through which goals will be achieved locally. It describes how UNRWA seeks to accomplish its
programme objectives in a decentralised institutional setting, while allowing the operational
flexibility demanded by specific refugee needs and priorities. Indicators are also identified,
against which results can be measured.
Cover photo: A Palestine refuge girl living in Rashidieh Camp smiles near her home. This photo was taken during a
visit of a relief social worker © Kl Hassan / UNRWA
© UNRWA 2013
This Field Implementation Plan was prepared by UNRWA (Lebanon Field Office), with technical support from the
Department of Planning.
About UNRWA
UNRWA is a United Nations agency established by the General Assembly in 1949 and is mandated to provide
assistance and protection to a population of some 5 million registered Palestine refugees. Its mission is to help
Palestine refugees in Jordan, Lebanon, Syria, West Bank and the Gaza Strip to achieve their full potential in human
development, pending a just solution to their plight. UNRWA‘s services encompass education, health care, relief and
social services, camp infrastructure and improvement, microfinance and emergency assistance. UNRWA is funded
almost entirely by voluntary contributions.
Department of Planning
Headquarters - Amman
Amman, Jordan
Tel: +962 (6) 580 2512
www.unrwa.org
Contents
1 Introduction ..................................................................................................................................... 1
2 Situation Analysis ............................................................................................................................ 2
3 Strategic Priorities ............................................................................................................................ 5
4 Human Development Goals ........................................................................................................ 10
GOAL ONE: A LONG AND HEALTHY LIFE.................................................................................................................. 10
GOAL TWO: KNOWLEDGE AND SKILLS ..................................................................................................................... 13
GOAL THREE: A DECENT STANDARD OF LIVING .......................................................................................................... 16
GOAL FOUR: HUMAN RIGHTS ENJOYED TO THE FULLEST .............................................................................................. 20
GOAL FIVE: EFFECTIVE AND EFFICIENT GOVERNANCE AND SUPPORT .......................................................................... 22
5 Implementation, Monitoring and Reporting Results ................................................................. 24
Annexes
ANNEX 1: INTEGRATED MONITORING AND BUDGET MATRIX .................................................................................................... 25
ANNEX 2: FINANCIAL PERFORMANCE BY RESOURCES ............................................................................................................. 42
ANNEX 3: TABLE OF PRIORITY PROJECTS ............................................................................................................................... 43
ANNEX 4: RISK MANAGEMENT PLAN FOR IMPLEMENTATION PLANS – TOP RISKS ........................................................................ 44
Acronyms and Abbreviations
AUB American University of Beirut
BDS Business Development Services
CBO Community Based Organisation
CMF Community Managed Fund
ESC Employment Services Centre
FHT Family Health Team
FIP Field Implementation Plan
FPI Family Protection Initiative
GBV Gender-Based Violence
GDP Gross Domestic Product
GF General Fund
HDG Human Development Goal
HIP Headquarters Implementation Plan
ICT Information Communication
Technology
ILO International Labour Organisation
IMF International Monetary Fund
LFO Lebanon Field Office
LPDC Lebanese Palestine Dialogue
Committee
MLA Monitoring Learning Achievement
MORSS Minimum Operating Residential Security
Standards
MOSS Minimum Operating Security Standards
MTS Medium Term Strategy
NBC Nahr el Bared Camp
NCD Non-Communicable Disease
NGO Non Government Organisation
OD Organisational Development
OSO Operations Support Officer
PMTF Proxy Means Testing Formula
PRS Palestine Refugees from Syria
PU Protection Unit
RBM Results Based Monitoring
RSSD Relief and Social Services Department
SHAP Social Hardship Assistance Programme
SHC Social Hardship Case
SIC Special Identification Card
SPSF Special People Special Focus
SSD Safety and Security Division
TVET Technical and Vocational Education
and Training
UNRWA United Nations Relief and Works
Agency for Palestine Refugees
UNSMS UN Security Management System
UR Unfunded Requirement
USD United States Dollar
VTC Vocational Training Centre
1
Foreword
By Filippo Grandi
Commissioner-General
I am pleased to present UNRWA‘s 2014-15
biennium plans, made up of five Field
Implementation Plans and a consolidated
Headquarters Implementation Plan. These
plans describe how the Agency will assist
Palestine refugees across the occupied
Palestinian territories (oPt), Jordan, Lebanon
and Syria and serve as the final set of
biennium plans in furtherance of the
Agency‘s 2010-15 Medium Term Strategy
(MTS). The plans build on the
recommendaitons of the MTS mid-term
evaluation, the guidance and direction of
UNRWA‘s Advisory Committee and the
successes and challenges being experienced
in the implementation of the 2012-13
biennium plans.
The environment in which the Agency
operates in all fields of operation is requiring a
response from UNRWA that is a combination
of emergency response and human
development interventions.
UNRWA remains deeply engaged in
responding to the on-going armed conflict in
Syria and its spillover effects in the region.
UNRWA‘s Syria, Jordan and Lebanon
operations are facing unprecedented strains
in their capacity to address the humanitarian
needs arising out of this crisis and the Agency
is deeply concerned about the large and
growing number of civilian victims and deaths
resulting from it.
The economic blockade, movement
restrictions, settlements and their expansion
and the barrier continue to seriously
negatively impact the human development
of Palestinians and Palestine refugees in
Palestine. This situation is further exacerbated
by continued sporadic violence, such as in
the Gaza strip.
Central to the Agency‘s vision for 2014–15 is
the commitment to the provision of effective
and efficient services to Palestine refugees,
supported by UNRWA‘s on-going reform
processes. Early indications suggest that the
Agency‘s application of a new Family Health
Team approach is, as foreseen, decreasing
the number of doctor consultations per day,
resulting in greater doctor-patient contact
time and patient satisfaction. Reforms in
education are working to strengthen the
quality of UNRWA‘s educational services while
generating cost efficiencies for the
organization. These reforms are vital in helping
equip refugees with the skills required to
achieve a decent standard of living. This
work is supported by strengthening systems
and management support services in UNRWA
best exemplified by the implementation of an
Enterprise Resource Planning system and
continued strengthening of results-based
management processes and practices.
As the Implementation Plans reflect, funding
shortfalls are having a serious impact on the
Agency‘s operations. Due in part to the
global financial crisis, financial support to
UNRWA is not keeping pace with an
increased demand for services caused by
growing numbers of registered refugees,
expanding needs, and deepening poverty.
This challenges the Agency in its efforts to roll
out reforms, respond to emerging needs and
maintain quality core services. Within the
context of a resource mobilization strategy,
UNRWA will continue to appeal to all
stakeholders to provide the support needed
to fulfil its General Assembly mandate to
promote the human development of all
Palestine refugees.
UNRWA Commissioner-General Filippo Grandi
ii
Palestine refugee communities continue to
wait for peace and a just and lasting
solution to their plight, and the shared
contributions of the international
community are critical to maintaining this
possibility and the hope of Palestine
refuges. This set of biennium plans provides
the framework for UNRWA‘s commitment
to Palestine refugees, and the areas of
collaboration with host Governments and
the international community. It is through
their implementation that we must all work
together to meet the needs, aspirations
and human development goals of
Palestine refugees.
Yours sincerely,
Filippo Grandi
1
1 Introduction
The United Nations Relief and Works Agency
for Palestine Refugees in the Near East
(UNRWA) is currently operating under the
context of the 2010-15 Medium Term Strategy
(MTS). In support of this it develops biennium
plans, or Field Implementation Plans (FIPs), to
direct and support programme
implementation. This plan for 2014-15 is the
final biennium plan in support of the current
MTS and builds on the successes and
challenges of the 2012-13 biennium plan. It
serves as UNRWA‘s strategy for assisting
Palestine refugees in Lebanon during 2014-15.
This FIP provides a comprehensive overview of
Lebanon Field Office‘s strategic choices,
outcomes and outputs contributing to the
achievement of the Agency‘s four Human
Development Goals (HDGs) and a fifth
management goal.1 These goals are
supported by seventeen strategic objectives
and measurable indicators, both those
common across UNRWA and a specific set for
the Lebanese context. The plan was
developed within the context of on-going
political, security and economic constraints as
well as the underfunding of the General Fund.
Lebanon‘s location in the heart of the
conflict-ridden Middle East serves as a major
obstacle to economic stability and the inflow
of foreign investment. Recurring wars, weak
infrastructure, and political instability have
placed a heavy burden on Lebanon‘s
outstanding budget deficit and post-war
infrastructure reconstruction efforts.
Compounding this is the current spill-over of
the Syria armed conflict into Lebanon, and
the movement of people between Syria and
Lebanon.
The Lebanon FIP therefore presents a
consolidated strategy to address both the
human development aspirations and the
pressing humanitarian needs of the Palestine
refugees in Lebanon. Moreover, the plan also
highlights the impact of the Syria crisis on
Palestine refugees in Lebanon, and the
Lebanon Field operation more broadly.
UNRWA‘s budget in Lebanon for the biennium
1 (1) A long and healthy life; (2) Knowledge and skills; (3)
A decent standard of living; (4) Human rights enjoyed to
the fullest; (5) Effective and efficient governance and
support.
2014-15 is estimated to be USD 181,101,000.
The Syria response will continue to be funded
from UNRWA‘s Syria Regional Response Plan.
At current funding level, the LFO is largely
restricted to the maintenance and continuity
of its core services to the Palestine refugee
population in Lebanon.
The Lebanon Field Office (LFO) remains
committed to advocating for the rights of
Palestine refugees in Lebanon while ensuring
the availability of core services based on
universal access (by virtue of being a
Palestine refugee). In addition, the Agency
will ensure the continuation of education and
health improvements while consolidating
reform measures.
In the 2014-15 biennium the Lebanon Office
will prioritise the following six goals:
1. To tackle and eradicate discrimination
2. To look after education services for at-risk
youth
3. To ensure access to healthcare
4. To provide better employment
opportunities
5. To link programmes to poverty reduction
6. To ensure evidence-based targeting of
programmes and reforms.
To achieve these objectives, UNRWA will
continue to work closely with local partners
such as the Palestine Red Crescent Society
and community based organisations (CBOs).
It will maintain and strengthen its close
collaboration with sister UN Agencies, the UN
Country team and the Government of
Lebanon, and in particular the Lebanese
Palestine Dialogue Committee (LPDC) as well
as technical line ministries related to health,
education and social affairs. Partnerships with
Lebanese universities and research institutes
will also continue and be built upon.
2
2 Situation Analysis
Country Context
Since its independence in 1943 Lebanon‘s
history has been marked by periods of
political turmoil interspersed with prosperity
built on its position as a regional centre for
finance and trade. Lebanon‘s 1975-90 civil
war was followed by years of social and
political unrest, marked by sectarianism.
The current power-sharing confessional
political system exemplifies this. It shapes
the socio-economic policy environment
and fuels the proliferation of clientele
networks. Moreover, post-war economic
rehabilitation efforts since 1992 have failed
to induce stable economic development.
A recent IMF report underlined that
―Lebanon‘s public debt—at about 148 per
cent of Gross Domestic Product GDP—still
ranks among the highest in the world and
drains about half of the annual budget
revenues in interest payments, leaving little
room for productive public spending.‖2
The poverty level of Lebanese citizens is
relatively high, with 8 per cent of the
Lebanese population living in extreme
poverty and 28.5 per cent under the upper
poverty line (USD 4 per person per day).3
Regional disparities are significant, as 82
per cent of the extremely poor and 78 per
cent of the poor are concentrated in the
North, Mount Lebanon and the Bekaa
Valley.4
Although the national unemployment rate
has remained around 9 per cent since
2007, the youth unemployment rate is
much higher at 22 per cent, which points
to the challenges the Lebanese economy
faces in creating new jobs for young
people.5 These employment challenges
are more extreme in the case of Palestine
refugees, who have been subjected to
decades of systematic discrimination by
the Lebanese government. This began to
change in June 2005, when the Ministry of
Labour issued a memorandum permitting
2 IMF Survey, ―Lebanon‘s Challenge: Reforming When
Times Are Improving,‖ October 2010. 3 UNDP, ―Poverty, Growth & Income Distribution in
Lebanon,‖ International Poverty Centre, 2008. 4 ibid 5 The World Bank, ―Labor and Social Protection‖
http://data.worldbank.org/topic/labor-and-social-
protection>
Palestine refugees who were born in
Lebanon to work legally in manual and
clerical jobs, areas previously unavailable
to them. Further, on 17 August 2010 the
Lebanese Parliament approved
amendments to the labour and social
security law, providing specific provisions
for Palestine refugees, emtitling Palestine
refugees to benefit from end-of-service
indemnities, though not from maternity
benefits and family allowances.
Despite this legislation, syndicated
professions remain out of reach and
Palestine refugees continue to be barred
from the liberal professions. Moreover, this
amendment lacks the proper executive
decrees to be issued by the Ministry of
Labour. Even if these amendments are
issued, Palestine refugees will continue to
face problems procuring work permits, as
they require the provision of a contract of
limited duration, and/or a Lebanese
guarantor. Further, non-ID refugees6 are
unable to benefit from these amendments.
These policies have had a negative impact
on the living conditions of refugees for
generations, exacerbating rates of poverty
and cultivating an unsustainable
dependency on humanitarian aid. A
recent ILO report on the Palestinian labour
force flags the precarious situation of
Palestine refugees in employment in
Lebanon. It found that a large proportion
of Palestine refugee labourers work on a
daily, weekly, or productivity basis and very
few receive a written contract, health
coverage, or paid sick leave.7
However, while falling short of allowing
Palestine refugees the full right to work, the
importance of the 2010 amendments should
not be underestimated. They sparked the first
debate of its kind relating to the presence of
Palestine refugees in Lebanon to take place
in the Parliament. The debate mirrored the
broader political environment and also
6 Non-ID refugees are a category of Palestinians in
Lebanon who do not hold the identification card
issued by the Directorate General of Palestinian
Refugee Affairs (DPRA), generally referred to as ‗non-
IDs‘.
7 ILO, ―Labour Force Survey Among Palestine Refugees
Living in Camps and Gatherings in Lebanon,‖ 2011.
3
showed that the positive work and spirit of the
LPDC in the last five years has gained social
momentum.
Needs Assessment Update
The number of Palestine refugees residing in
Lebanon is estimated to stand at between
260,000 and 280,000, although as of
December 2012 there were 474,000 Palestine
refugees registered in Lebanon.
Sixty-two per cent of the Palestine refugee
population in Lebanon reside in 12 camps.
Most of these camps are deemed spaces
outside of the purview of Lebanese security
and legal protection though the Lebanese
security forces control access to camps and
implement restrictions on the mobility of both
goods and refugees. Fragile rule of law
structures in several camps has created an
environment vulnerable to the spread of
illegal activities including the proliferation of
drugs. As a result of such conditions, refugees
living inside camps suffer from social stigma
and discrimination.
Palestine refugees in Lebanon are legally
barred from practicing over 30 professions,
have been barred from purchasing property
since 2001, and have very restricted access to
financial assets. This has led to chronic
violations of refugees‘ basic rights and to high
rates of unemployment, with 56 per cent of
refugees jobless, 15 per cent food insecure, 40
per cent having only an elementary
education or below, and 31 per cent being
chronically ill.8 Two-thirds of Palestine refugees
suffer from poverty and 6.6 per cent of
refugees are living in extreme poverty.9
Correspondingly, only 37 per cent of the
working age population is employed. Those
with jobs often fill elementary labour positions,
usually in precarious and unreliable
conditions. Only six per cent of the Palestine
refugee labour force has university training.
These statistics point to the persistence of
poverty among the Palestine refugee
population and the necessity of developing a
comprehensive and sustainable strategy to
alleviate poverty.
8Socioeconomic survey of the living conditions of the
Palestine refugees in Lebanon, AUB/UNRWA, 2010 9 Ibid.
The crisis within Syria is displacing many
Palestine refugees. Moving across
international borders is considered an option
of last resort, but one which many families are
taking. The Lebanese Government has
allowed Palestine refugees from Syria (PRS) to
enter and stay within Lebanon on a
temporary visa and it is now estimated that
80,000 PRS will have entered Lebanon by
January 2014. As registered Palestine
refugees, these persons are able to access
UNRWA services, although formal transfer of
family files from Syria Field to Lebanon Field is
not taking place given the temporary nature
of these refugees‘ legal status in Lebanon.
Nevertheless, the existence of this population
is placing strains on UNRWA‘s normal
programmes. Furthermore, the existence of
additional non-Palestinian inhabitants in
Palestinian camps and gatherings is also
having a negative impact at several levels.
The majority of the PRS (54 per cent) live in
existing Palestine refugee camps. Of the PRS
families in Lebanon, 32 per cent live in Saida
area, 19 per cent in Beqaa area, 19 per cent
in central Lebanon area, 16 per cent in Tyre
area and the remaining 14 per cent in north
Lebanon area. The Lebanese authorities issue
transit visas for PRS while arriving in Lebanon.
This visa is valid for 14 days. In addition, PRS
with expired visas may obtain a 3-month
residency permit free of charge.
UNRWA is the main provider of education,
healthcare, water, housing, waste disposal,
social assistance, food aid, and other public
services to Palestine refugees in general and
residents of camps in particular. In addition to
UNRWA, there are 46 Arab organisations and
approximately 20 foreign NGOs which are
involved with various issues related to the
living conditions and welfare of Palestine
refugees in Lebanon.
Planning Context and Scenarios
Given that UNRWA operates in a very fluid
regional and uncertain financial environment,
the LFO is making the following planning
assumptions for 2014-15:
1. The on-going political developments in
Lebanon as well as in the region are likely
to continue in 2014-15. Radical changes
to the existing political environment in
Lebanon are not expected, with political
4
instability expected to remain a common
feature of the Lebanese landscape, and
the Syria crisis in particular.
2. Any increases in public sector salaries
and benefits are likely to seriously impact
the Lebanon Field‘s capacity to deliver
services. Budgeting process will have to
take this scenario into consideration.
3. Operational and non-staff costs are
rising due to inflation, the increasing cost
of energy and water, and an increasing
refugee population.
4. It is estimated that, by 1 January 2014,
80,000 PRS will be in Lebanon and that this
number will increase steadily throughout
the biennium. UNRWA‘s normal
programmes will need to be
supplemented with funding from
Emergency Appeals to meet the needs of
this population.
Risk and Risk Monitoring
As noted above, it is assumed that, on the
political and security levels, the operating
environment will remain stable albeit fragile
and subject to sporadic localised fighting.
Nevertheless the Agency must prepare itself
for a more significant deterioration in the
operating environment whether as a result of
localised or large-scale conflict. Although
such risk has materialised frequently over
recent decades, the likelihood of this risk
being realised during the biennium is
increased as a consequence of the on-going
crisis in Syria. Linked to this is the possibility of
greater numbers of Palestine refugees
arriving in Lebanon from Syria.
In order to manage and respond to the risks,
the LFO will periodically review and update
its risk register.
5
3 Strategic Priorities
UNRWA‘s five overarching goals will guide
its strategic proirities in Lebanon. Taking into
consideration the availability of resources
and UNRWA‘s reform priorities, the LFO will
focus on enabling a path to poverty
alleviation for the Palestine refugee
community by advocating for a rights-
based policy environment and expanding
refugees‘ access to opportunities which will
enhance their capabilities. The LFO will
focus its efforts on the following strategic
priorities:
1. To tackle and eradicate discrimination
2. To look after education services for at-
risk youth
3. To ensure access to healthcare
4. To provide better employment
opportunities
5. To link programmes to poverty reduction
6. To ensure evidence-based targeting of
programmes and reforms.
Strategic Priorities by Human Development
Goal
Goal 1: A long and healthy life
The health programme is currently focusing
on the introduction of a health triage
system through the continued roll out of the
Family Health Team (FHT) approach, which
is set to improve families‘ access to quality
health consultations. In supplementing this,
efforts will focus on reducing hospitalisation,
supporting people with disabilities,
implementing a comprehensive health
education strategy and meeting the health
needs of PRS.
Palestine refugees are highly dependent on
UNRWA‘s health services, and the poor
spend a large share of their income on
healthcare, particularly hospitalisation.
Therefore the Agency will dedicate greater
efforts to promoting preventive healthcare
services in order to support the long-term
livelihood of the poor in a more sustainable
way, particularly for women and children.
People with disabilities are among the most
vulnerable groups of refugees and as a
result of this tend to be over represented in
poor households. Thus, the Agency will work
with the health department in revising its
overall policies towards disabilities by
conducting a full assessment of the physical
accessibility of all health premises, and
incorporating screening for disabilities in the
school health programme. Moreover, the
Agency will intensify its efforts to increase
disabled persons‘ access to assistive
devices.
At a general level, the Agency will support
the implementation of a comprehensive
health education strategy with the aim of
increasing community health knowledge.
Such a cross-cutting approach will involve,
for example, coordination between the
family health teams, the career guidance
unit and the scholarship programme to
orient newly graduated students towards
specialising in professions that improve the
quality of healthcare services for Palestine
refugees. The Agency will support refining
the health programme‘s knowledge
management strategy to allow for more
evidence-based targeting of vulnerable
populations.
Finally, the health department will work to
ensure that the health needs of PRS are
met.
Goal 2: Knowledge and skills
UNRWA education data shows a clear link
between educational attainment and
economic status.10 Non-enrolment11 and
poor education attainment are two
pervasive factors sustaining poverty and low
human capital in the Palestinian community
in Lebanon. The Agency recognises that
non-enrolment has not been properly
addressed in UNRWA‘s previous
educational interventions, as there appears
to be an implicit push-out mechanism in
UNRWA schools which tends to eliminate
low performing students rather than
rehabilitate them.
10 Socioeconomic survey of the living conditions of the
Palestine refugees in Lebanon, AUB/UNRWA, 2010 11 ‗Non enrolment‘ refers to students that have not joined
educational facilities. ‗Drop out‘ refers to students who
leave school throughout the year.
6
Therefore, the Agency will prioritise the
following: 1) the Agency recognises the
need for a more comprehensive action
plan to rehabilitate the physical
environment of UNRWA schools; 2) the
Agency will implement short-term and long-
term dropout recovery interventions across
all UNRWA schools in Lebanon, including
through conducting a comprehensive
quantitative study on the drivers of non-
enrolment. Moreover, the education
department will coordinate with local NGOs
involved in learning support interventions to
target students identified as at risk in grade
eight in a manner that complements
UNRWA‘s existing learning support activities.
Primary education in the LFO will also be
improved through Agency-wide education
reform. This reform includes in-service
training to ensure a professional, qualified
and motivated teaching force is in place;
adapting UNRWA curriculum to support a
holistic approach to learning and
development; implementing tools to ensure
that evidence-based policy making and
informed decision-making can take place
at all levels of operation; developing an
effective system to identify and support
children with special educational needs;
enhancing the effectiveness, efficiency and
relevance of education planning and
management; and implementing an
educational governance policy and
regulatory framework.
In response to the Syria crisis, the education
department will strive to ensure it has in
place the human, operational and logistical
capacities necessary for effective delivery
of education in emergencies, including
psycho-social support for the children of
PRS.
Lastly, there are a number of interventions
which are recognised as long-term priorities
to be implemented if resources and
programmatic imperatives permit. On the
academic track, the LFO recognises the
need to assess the impact of the UNRWA
school counselling system and reform it
accordingly. The Field will also prioritise
targeting students who have not enrolled in
school for six consecutive months, linking its
education work to the TVET programme.
Resources permitting, the TVET unit will
develop an “Another Chance” initiative,
which will equip beneficiaries with basic
education, with an emphasis on promoting
literacy and increasing their awareness of
marketable professions.
Goal 3: A decent standard of living
Restrictions on the access of Palestine
refugees to the job market serves is a major
cause of poverty in the Palestinian
community. In tackling un- and under-
employment, the Employment Services
Centres (ECSs) form the cornerstone of
UNRWA‘s employment strategy, and
represent an important mechanism for
poverty reduction. In addition to their
regular employment services, the ESCs will
play a leading role in advocating for reform
of the legal regulations governing access of
Palestine refugees to the job market, along
with the UNRWA protection unit, the ILO,
and other relevant stakeholders. The ESCs
will also strive to make their registration
efforts more accessible to the poor camp
residents, particularly heads of households,
through conducting outreach sessions
inside camps and by coordinating with
local NGOs in identifying poverty pockets
across different camps and gatherings. The
ESCs will convene regular networking events
as an additional feature of their counselling
and outreach services. Finally, the ESCs will
develop an intervention for young
professionals to raise awareness of job
opportunities abroad, as remittances have
proven to be an important source of
income for poor families.
The LFO‘s Self-Employment Initiative is
working to increase refugees‘ access to
high-quality and affordable microcredit
opportunities as well as non-financial
services. This will continue and four new
Community Managed Funds (CMFs) will be
established in Saida and Tyre through which
local implementing partners can benefit
from technical support aimed to improve
their capacities to professionally manage
and disseminate microloans. Moreover, the
Agency will improve the access of loan
beneficiaries to business development
services, and will update curricular material
in UNRWA‘s Vocational Training Centre
(VTC) to include a course on
entrepreneurship. As part of the Business
Development Services (BDS) package, the
7
Agency will offer marketing support for
microenterprises managed by women,
people with disabilities, and youth. The
Agency will also work to increase suppliers‘
and beneficiaries‘ knowledge of market
dynamics in the camps.
On the vocational track, UNRWA‘s
education department and TVET unit will
collaborate to narrow the educational gap
periods in which youth, particularly drop-
outs, tend to miss out on alternative
education options to increase their skills and
employability in the future. The Agency will
expand the TVET programme to include
targeted interventions for children starting
at grade seven, so that they can study
Brevet Professional (BP) and continue their
education onwards to Baccalaureate
Technique (BT). The Agency will finalise its
accreditation process with the Ministry of
Education so that TVET students sit official
exams and hold a recognised diploma. This
is particularly important to secure a job and
to those who will continue their studies at
universities.
The Lebanon Field recognises that the
Social Hardship Assistance Programme
(SHAP) system has under-served the working
poor and over-represented non-poor
female-headed households and small-sized
families. Given this, a new targeting system
has been designed and piloted by the relief
and social services department (RSSD) at
UNRWA Headquarters. Under the new
system, eligibility for food assistance will be
based on a proxy-means testing formula.
Accordingly, RSSD is developing a
comprehensive communication and
gradual transition strategy for those who will
no longer be eligible for SHAP funds. To
support this reassessment process, the
Agency will conduct routine assessments of
poverty rates and living conditions every
three to four years in order to sustain up-to-
date, evidence-based programming.
Goal 4: Human rights enjoyed to the fullest
The unclear legal status of Palestine
refugees in Lebanon is a driver of the
continued precarious situation the
community faces in Lebanon. A key priority
for the 2014-15 biennium will be continued
advocacy for the enhanced legal status of
Palestine refugees in Lebanon, including
encouraging the mainstreaming of legal
advocacy efforts across programmes and
departments. The protection unit will
prioritise support to poor communities
through legal counselling services and
awareness-raising projects. It will support
capacity-building for lawyers representing
Palestine refugees and improve
coordination with UNRWA ESCs to ensure
the working rights of Palestine refugees. The
Agency will encourage greater attention to
poor women, particularly women married
at an early age, in the protection unit‘s
efforts to mitigate gender-based violence,
while also creating an inclusive and
empowering environment in which persons
with disabilities can live in dignity and enjoy
equal rights and opportunities to achieve
their full potential. The Agency recognises
the importance of securing identification for
non-ID Palestine refugees and ensuring their
access to UNRWA services. The Agency‘s
registration activities will also continue
throughout the biennium.
Lastly, the LFO will work to fulfil the
protection needs of PRS who have crossed
into Lebanon, including through the
provision of interventions with key
stakeholders to ensure non-discriminatory
treatment of those seeking to take refuge in
Lebanon.
Goal 5: Effective and efficient governance
and support
There will be a continuing need to drive
reforms throughout all of UNRWA‘s
programmes to ensure maximum efficiency
in operations, while also maintaining high
quality support services. The Front Office is
responsible for maintaining reforms
throughout the biennium as well as
maintaining responsive and reliable
communication with refugees, the host
Government, and other stakeholders both
within Lebanon and externally. To support
these goals, in 2014-15 UNRWA will prioritise
the mobilisation of resources for (i)
reconstruction of Nahr El Bared and the
continuing relief and recovery activities;
and (ii) the Agency‘s response to the needs,
as well as protection issues, of PRS. It will
continue to strive to bring about
8
improvements in service delivery despite
forecasting limited additional resources for
Lebanon operations from the General Fund.
Cross-cutting themes
The Lebanon Field will continue to
mainstream cross-cutting themes in annual
operational work plans and to ensure the
systematic implementation, monitoring and
reporting of the ensuing results. The
following are the priority cross-cutting
themes for the 2014-15 biennium.
Gender: The implementation of the Family
Protection Initiative (FPI) started in
December 2011 with the goal of reducing
the prevalence of domestic violence and
gender discrimination through awareness-
raising activities targeting key segments of
the community. The project, which is being
piloted in Tyre and managed by the
operations support officer (OSO) team,
seeks to build the capacity of UNRWA staff,
particularly front-line staff, and
implementing partner NGOs to address
gender-based violence (GBV). The aim of
the pilot project is to build a sustainable
referral mechanism for GBV survivors.
Over the course of 2012, a Family Protection
Network was established bringing together
UNRWA focal points and other service and
assistance providers to identify and
coordinate cases in confidence. This work
will continue.
In order to ensure maximum inclusion of
poor persons in FPI efforts, the Agency will
encourage the FPI team to develop a
targeted outreach plan and registration
method in the coming year. The Agency will
also promote collaboration with CBOs and
the relief and social services programme in
identifying economically vulnerable
populations.
Youth: UNRWA is committed to mainstream
youth engagement throughout all its
programmes. This will be done through
promoting youth empowerment (e.g.
strengthening school parliament, youth
associations, promoting a sense of
ownership among the youth), peace
building initiatives through recreation
activities, and outreach towards to young
people (including linkages with business
community for employment issues).
Disability: The ‗Special People Special
Focus‘ (SPSF) initiative was created to better
serve persons with disability and promote an
overall inclusive Agency environment. In this
respect, inclusion not only implies physical
accessibility issues, it also aims at changing
mindsets and attitudes. Following a human
rights based approach, UNRWA seeks to
actively promote all individuals with
disability to fully realise their rights.
The SPSF initiative is being piloted in Saida
area. A multi-sectoral approach was taken
towards improving internal and external
coordination to enhance empowerment,
participation and inclusion of persons with
disability among Palestine refugees in
Lebanon. A main focus during the first year
of implementation has been on awareness
and sensitisation activities to counter
prejudice and reduce intolerance and on
enhancing the inclusive environment of
schools. For the first time, children with
disability from specialised organisations
have been included in all recreational
activities during the summer months. In
September 2012, three schools were
selected to be piloted under the SPSF
initiative, following the inclusive education
model.
In order to address the lack of specialised
services in the Palestine refugee
community, as well as the Lebanese
society, an effort was made to produce
flyers and hold outreach meetings to
promote social/health professions, including
psychology, occupational therapy, special
educational needs, physiotherapy and
speech therapy among grade 12 students.
Safety and Security: In line with the LFO
safety and security division (SSD) mission to
provide leadership, advice and operational
support on risk management, LFO SSD aims
to improve staff safety, asset security and
installation protection to enable sustainable
programme delivery. With a view to
institutionalising and optimising the Security
Risk Management System LFO SSD will
work towards developing/continue five
core business functions: i) risk management;
ii) strengthening policy and standards, iii)
crisis and emergency management, iv)
incident management and reporting, and
9
v) guard force management. SSD will
prioritise risk management support to field
emergency preparedness and response
efforts. The SSD team will also continue to
manage UNRWA commitments to the UN
Security Management System (UNSMS)
(including Minimal Operating Security
Standards (MOSS)/ Minimal Operating
Residential Security Standards (MORSS)) for
international staff.
10
4 Human Development Goals
GOAL ONE: A long and healthy life
Palestine refugees in Lebanon do not
benefit from public health insurance due
to restrictions imposed by Lebanese
regulations, and as a result around 94 per
cent of the refugees do not hold any form
of insurance, instead relying to a great
extent on UNRWA for their health services.
UNRWA is therefore the main provider of
health care services to Palestine refugees
in Lebanon, offering both health care and
hospitalisation services.
Results from the 2012-13 Biennium
UNRWA provides health care services
through 28 health centres located in the
areas of concentration of the Palestine
refugees, with half located inside the
camps and half located in gatherings.
UNRWA provides a comprehensive
package of both curative and preventive
services, which include consultations with
General Practitioners (GPs), ante- and
post-natal healthcare, family planning,
and specialist care (cardiology,
gynaecology, and ophthalmology).
Furthermore, health care provides essential
drugs and a range of simple diagnostic
tests (laboratories and radiology). All
health care services provided within
UNRWA health centres are free.
Assessments of the health care services
performed in 2009 and 2010 reveal several
challenges facing the delivery of these
services. Examples include a high load of
consultations per medical officer per day
(122 consultations per medical officer per
day in 2010), uneven distribution of
patients‘ consultations during working
hours and inefficient management of
medical supplies. In response, the health
programme has piloted a series of reforms
which began to take effect in 2012. In
particular, the health programme started
piloting the Family Health Team (FHT)
approach and e-Health in nine of its health
centres by the end of 2012. This approach
aims at the delivery of holistic and
comprehensive health services to the
individual within the context of the family
and community. The FHT approach will
cover all health centres by the end of 2013.
Linked to this was the roll out of a
computerised appointment system. The
Agency also approved procedures that
enable beneficiaries to refill prescriptions
for chronic medications for non-
communicable diseases (NCDs) directly
from the pharmacies without the need to
see the medical officers, decreasing the
load on the medical officers. Tagged to
these reforms was capacity building of the
UNRWA health staff to improve their
knowledge and skills in health care
services.
Preliminary results from this reform show an
improvement in the number of
consultations per medical officer per day,
with a drop to 98 in the second half of
2012. Equally, appointments are also better
distributed throughout the day in health
centres implementing the FHT.
In the provision of secondary and tertiary
care, UNRWA contracts local hospitals for
hospitalisation services. Secondary
hospitalisation services include the majority
of the medical and surgical conditions,
accounting for around 85 per cent of the
hospitalisation admissions. Tertiary care
services include procedures and
treatments that require advanced and
sophisticated technologies including
cancer treatment, open heart surgery, and
brain surgery. UNRWA gives full financial
coverage for secondary care services and
offers a co-share for prostheses and non-
essential medications. However, in the
case of tertiary care services, which tend
to be very expensive, UNRWA contributes
an average of 50 per cent of the cost of
the hospitalisation to a ceiling of USD 4,200
per admission, and the patients must cover
the rest. In some very expensive tertiary
conditions where the hospitalisation bill
exceeds USD 10,000, UNRWA‘s contribution
can be as low as 5 per cent. This is leading
to a high financial burden for patients.
Hospitalisation persists as one of the major
11
financial burdens for household
expenditures.12
To address shortcomings in this system, and
support patients suffering from chronic
catastrophic diseases such as cancer a
new hospitalisation strategy, CARE, was
developed. The aim is to lower the
financial burden of tertiary hospitalisation
as well as support in the cost of
medications for these patients. It includes
a sound monitoring and evaluation system
for the management of hospitalisation
services. To lead this, a hospitalisation unit
was established in the health department,
and area health coordinators and area
hospitalisation medical officers are
responsible for the day-to-day control of
hospitalisation admissions.
As part of the measurement of
performance indicators of the contracted
hospitals, a patient satisfaction survey
regarding hospitalisation services was
conducted during the summer of 2011,
which revealed an 83 per cent satisfaction
rate with the services. This reflects the
positive impact of these reforms, especially
nursing care (90 per cent), medical care
(87 per cent) and hospital environment (88
per cent). Satisfaction levels were less high
with regards to patient awareness (72 per
cent) and the performance of the
designated medical officer (DMO) (76 per
cent).13 Patients from southern areas
registered the highest satisfaction rate (82
per cent) compared to other areas. This
might indicate an improvement in the
satisfaction rate of the poor with the
reforms of 2010.
Finally, UNRWA will provide PRS with access
to health care as needs arise, both through
established UNRWA health centres and in
partnership with humanitarian actors at
points of PRS congregation.
In the 2012, 85 per cent of inhabitants in
the camps had access to water from
UNRWA operated or subsidised water
supply systems. UNRWA also provided
12 Households with a hospitalised family member spent on
average USD 614 over a 6 month period. The share of
household expenditure on health jumps from 3 per cent
to 13 per cent when a family member is chronically ill or
disabled. 13 Hospitalisation satisfaction survey 2011- UNRWA –
PSO/FHP
storm water disposal after heavy floods.
Because of narrow alleyways in the biggest
parts of the camps, it was not possible to
install the requisite water supply, sewer,
and storm water systems. Therefore,
throughout many of the camps, a
combined system of sewage and drainage
will continue to exist. This arrangement will
strain each camp‘s capacity to treat
sewage and manage rainwater, despite
the fact that flood prevention measures
were well organised and implemented in
all camps during 2012, including the rainy
season. While garbage continued to be
collected regularly throughout the camps
in the 2012-13 biennium, problems with
garbage collecting equipment, specifically
breakdowns in garbage compactors and
dumpers, has overextended available
resources. Labourers are forced to work
extra hours with overtime pay, which
exacerbates pre-existing budgetary
problems. As a result, the overall hygiene of
the camps has deteriorated, and extra
vehicles and trash bins are required to deal
with scattered garbage.
UNRWA provides most sanitary refuse
collection services in all Palestine refugee
camps in Lebanon. However, the Agency‘s
resources in terms of equipment and
facilities remain limited, and refugee
community participation is relatively poor.
This contributes to the camps‘ overall
hygiene and cleanliness.
Expected results from 2014-15
The LFO will maintain its primary, secondary
and tertiary health care programme in the
2014-15 biennium. It will focus on
continuing to roll out the FHT approach,
providing additional support to health
centres that require it. Capacity
development of health staff will be a
priority to ensure that the reforms are
adequately staffed and supported.
The Agency will also continue to improve
the living conditions of Palestine refugees in
camps. The focus will be on large scale
rehabilitation projects as well as key
improvements in all camps related to
environmental health, housing and
infrastructure, to ensure a standard
comparable to adjacent Lebanese
12
communities. The key priorities will be
upgrading solid waste management
systems and the maintenance of related
infrastructure, ensuring adequate access
to potable water, and building hygiene
awareness to foster clean camps. Disability
accessibility will be implemented in all
premises wherever possible. In some
camps, such as Burj El-Shamali and
Beddawi, interventions on the water supply
network are needed to ensure fair
distribution of water. Further improvement
in the control of sewage and storm water
floods are subject to the implementation of
capital projects, especially in Ein al-Helweh
and Rashidieh.
The Agency will continue to work on
developing innovative ideas in camp
improvement, such as the new shelter
approach, to provide quality services at
reduced costs. Camp communities will be
engaged to the maximum extent possible
in projects, from needs assessment through
design to implementation to ensure
ownership, understanding and buy-in.
Linked to this, the Agency will explore more
self-help and partnership approaches to
the maintenance of infrastructure systems,
solid waste, and water management. A
monitoring system overseeing these
reforms and priorities will be established to
enhance responsibilities and
accountability.
13
GOAL TWO: Knowledge and skills
Results from the 2012-13 Biennium
UNRWA has been providing education
services to Palestine refugees in
Lebanon for more than 60 years and
remains the main provider of basic
education for Palestine refugee children.
Data from a 2010 American University of
Beirut (AUB) study revealed that around
80 per cent of refugees from the ages of
6-18 are enrolled within the Agency‘s
network of schools, compared to 6.6 per
cent who are enrolled in Lebanese
public schools and 8 per cent in private
schools. According to an ILO study, the
proportion of students educated by
UNRWA has increased dramatically,
from 43 per cent in 1999 to nearly
double that in 2011.14 Forty per cent of
Palestine refugees in Lebanon have
completed elementary education,
twelve per cent have completed
preparatory education, five per cent
have finished secondary education, and
five per cent have a university degree.
UNRWA schools in Lebanon are facing
two main challenges: 1) a relatively low
level of academic achievement of
UNRWA students, and 2) a persistently
low level of educational attainment due
to a high number of dropouts and/or
non-enrolled students. This has
contributed to a general perception of
declining standards of education in
UNRWA schools in Lebanon over the
past years.
Despite overall increases in enrolment
during the late 1990‘s, recent years have
seen a steady decline in the number
students enrolled in UNRWA schools. In
2002, 42,022 students were attending
UNRWA schools. By 2010 the number
had dropped to 32,191 students. This
represents a 23.4 per cent drop in the
school population within eight years. The
rate of non-enrolment is significantly
higher among males (24 per cent)
compared to females (15 per cent). The
14 ILO, ―Labour Force Survey Among Palestine Refugees
Living in Camps and Gatherings in Lebanon,‖ 2011, 10.
exact reasons for this continuing decline
are largely unknown.
UNRWA‘s Poverty Alleviation Strategy‘s
analysis of a dataset of students enrolled
between the years 2001 and 2009
revealed that the gross retention rate of
UNRWA‘s students is 59 per cent. In trying
to understand this, some studies
estimate that at least half of all dropped
out students left school because of low
academic achievement, while 20 per
cent left for socioeconomic reasons.
Students who dropped out due to low
academic achievement tend to do so
around Grade seven or eight. There also
appears to be a swell of drop-outs
around Grade four, as it is a breaking
point between lower and upper
elementary level.
Although a majority of drop-out students
received individual counselling and
were identified as at-risk prior to their
departure from the schooling system (87
per cent), the current counselling
programme has not succeeded in
retaining drop-outs. Instead the school
systems is generating a push-out
mechanism which ultimately eliminates,
rather than rehabilitates, students with
low academic achievement.
During 2012-13 the LFO began adapting
blended learning approaches for the
UNRWA context. This was done as part
of the broader school-based teacher
development and ―Leading for the
Future”15 initiatives. The process aims to
decentralise the professional
development of teachers and empower
schools to undertake these tasks.
Blended learning can also help in
promoting the Inclusive education
policy framework, which is being
established by UNRWA. The goal is to
enhance teacher understanding of the
concept and to make available
adequate tools.
15 In October 2012, two blended training courses SBTD
(teacher development) and LftF (head teacher
empowerment) were launched as part of the continued
implementation of the education reform strategy.
14
One of the main challenges of decision-
making in education is to update the
School Management System16 to be
more responsive to the management
needs for making effective decisions. In
response to this challenge and in order
to modernise the management of
various schools processes, the LFO
developed an electronic database with
the capacity to handle administrative
processes, to generate user-defined
reports (such as reports to compare
passing rate, mean between two
academic years, Ministry of Education
reports, etc.) and to add new modules
(such as Learning Support module). This
School Management System was fully
operational in all schools in 2012.
Expected results from 2014-15
Building on the progress achieved during
the previous biennium and based on
efforts to improve the effectiveness of
UNRWA‘s education system, the ambition
of the education programme is to further
improve the achievement of students,
particularly of low achievers. Improvement
of students‘ academic achievement is a
major concern of the education
programme. The education department
therefore aims to maintain the positive
trend for the official exams (Brevet and
Baccalaureate), the school-based exams
(mid-year and end-of-year exams) for all
grade levels, and unified exams (mid-year
and end-of-year) for grades three and six
(end grade for upper and lower
elementary cycles). This will be done by
seeking to enhance the effectiveness of
the education system through improving
the quality of teachers, supporting
curriculum development and student
assessments, building the leadership quality
of Head Teachers and supporting inclusive
education including through recreational
opportunities and human rights education.
In addition, Monitoring Learning
Achievement (MLA) tests for grades four
and eight will be implemented during
2014-15 to monitor improvements.
16 This has been replicated across UNRWA in the form of
the Education Management Information System (EMIS).
In light of the Agency‘s budget constraints,
improvements in the UNRWA education
system will focus on enhancing
effectiveness. The most important factor
determining the academic achievement
of students, and the development of their
personal capacities, is the effectiveness of
the education system, and this includes the
quality of teachers, the teaching
methodology, curriculum development
and students assessment, the quality of
textbooks, the building up of the leadership
capacity of head teachers, the quality of
decision-making, and inclusive education
including recreational opportunities and
human rights education.
The Agency will work specifically to
address the issue of educational drop-outs
both through exploring preventative
measures to combat non-enrolment in the
long-term, and in the development of
short-term interventions that target
students who have already dropped out.
The Agency will conduct a comprehensive
quantitative study on the drivers of non-
enrolment and the living conditions of the
non-enrolled children and youth. In
addition, the Agency will implement a two-
week dropout recovery campaign in
cooperation with the Learning Support and
Career and Guidance Unit on a quarterly
basis. This will help improve the profiling
and recovery of drop-outs, as well as
provide an opportunity to educate youth
about alternative education options, such
as TVET. Finally, the Agency will aim to
extend the provision of in-class learning
support and pull-out sessions17 to cover
grades seven and eight. If it is determined
that this is not within the capacity of
UNRWA school staff, this could alternatively
be achieved through partnerships with
local civil society organisations who offer
remedial classes.
UNRWA will continue to promote the
professional development of its teachers
and head teachers. The goal is to have a
professional, qualified and motivated
teaching force in place. The Agency will
maintain its regular in-service training for all
teachers and head teachers. To
supplement this, a teacher policy (on
17 A term to describe when a selected group of students
receive instructions outside their normal classes.
15
recruitment and career progression) is
under preparation in UNRWA
headquarters. A curriculum and student
assessment policy has also been prepared,
and will be rolled out in 2014-15.
In addition to this, more emphasis will be
placed on supervision, support and
coaching of teachers. The role of
education specialists will be more focused
on providing guidance, support and
coaching to teachers, based on regular
class rooms visits. Classroom observation
findings will be carefully analysed to
determine compliance with modern
teaching practices and identify capacity
development needs of staff. Furthermore,
UNRWA aims to strengthen the technical
role of the head teachers and to give the
schools more responsibility and
independence in managing their affairs.
Supporting informed decision-making, the
School Management System will continue
to be rolled out in 2014-15.
UNRWA will develop enhanced curricula
that support a holistic approach to
learning and personal development.
During 2014-15 and under the lead of the
core curriculum unit, the Lebanon
education programme will continue to
improve textbooks through curriculum
development and enrichment.
Finally, UNRWA will provide PRS with
educational opportunities as needs arise,
both through UNRWA schools and in
partnership with humanitarian actors at
points of PRS congregation. In addition,
UNRWA will continue to provide Education
in Emergency for PRS, addressing issues of
equity in and access to education as well
as child protection through education.
Moreover, effective response to the
educational needs of the PRS children will
be met by continuously strengthening staff
capacities, delivering education through
UNRWA schools from non-GF funds.
16
GOAL THREE: A decent standard of living
Results from the 2012-13 Biennium
According to the 2010 AUB survey, two-
thirds of Palestine refugees in Lebanon are
classified as poor. The poverty rate is higher
in camps than in gatherings. Nearly three
quarters of camp residents are poor while
slightly more than half of gathering
residents are poor.
The survey also examined the extreme end
of the poverty spectrum. Those below the
extreme poverty threshold cannot afford
to purchase enough food to satisfy the
daily basic needs of an adult. Based on this
criteria, 6.6 per cent of Palestine refugees
spend less than the monetary equivalent
necessary to cover their basic daily food
needs. The extreme poverty rate in camps
(7.9 per cent) is almost twice of that
observed in gatherings (4.2 per cent).
Poverty among Palestine refugees in
Lebanon is characterised by young age.
Indeed, 70 per cent of children and
adolescents (6-19) live in poverty, and nine
per cent live in extreme poverty. Overall
poverty increases with the number of
children and family size. However, extreme
poverty decreases with the number of
children in the family. This is due to the
contribution of young family members to
the livelihoods of extremely poor families,
often through child labour. All households
that have a disabled household head
(nine per cent of the refugee population)
are classified as extremely poor. Poverty is
also significantly higher when the
household head has low education
(primary and below).
To respond to this, the LFO has developed
a new Poverty Alleviation Strategy, which
holds refugees‘ rights and capabilities at its
core. The main priorities to which the
Agency has committed can be
summarised under the acronym ENABLE as
follows: Eradicating discrimination;
Nurturing at-risk youth; Access to
healthcare; Better employment
opportunities; Linking programmes to
poverty reduction; and Evidence-based
programming. Within each issue area of
ENABLE, the UNRWA is implementing
specific, targeted interventions which will
increase the inclusion of the poor in the
Agency‘s various programmes in the short-
term and long-term, as well as large-scale
interventions aimed at improving the
general conditions of all refugees
regardless of their poverty level. These
interventions are mainstreamed
throughout all services.
In addition to the Poverty Alleviation
Strategy, the Agency has also recently
completed a needs assessment of
marginalised women and girls who are
registered as Social Hardship Cases. This
assessment was undertaken in 15 camps
and gatherings in Lebanon by UNRWA
RSSD staff in coordination with the CBOs.
The main findings and recommendations
of the assessment cut across the areas of
education, employment, and civic
engagement.
The Employment Service Centres project
has been working to respond to issues of
poverty and longstanding employability
obstacles faced by the Palestine refugees
in Lebanon. They seek to support capacity
building and integration into the labour
market. The high number of jobseekers
registering at the ESCs thus far is an
indicator of the relevance of this project,
and reconfirms the Palestinian labour
force‘s need for employment services.
Bolstering this, a survey of jobseekers found
that 70 per cent are satisfied with the
support provided to them. The ESCs have
also successfully contributed to increasing
female registration (with 1,880 registered
females making up 41 per cent of the
jobseekers, which compares well with
women‘s 18 per cent representation in the
Palestine work force.
Throughout 2013, the Agency will continue
advocating to the Lebanese government
to facilitate the issuance of work permits,
which should be automatically renewable
and not linked to the availability of a work
contract. Further, the LFO employment
unit‘s efforts to promote the right to work
will be backed by sectoral analysis and
studies on the Palestinian labour force
within the Lebanese market. Employment
unit staff will collaborate with the
protection unit, the ILO, and other relevant
stakeholders on legal issues, particularly on
17
developing basic standards for ensuring
that Palestine refugee workers receive
legal representation if their work is
wrongfully terminated or if they are not
receiving sufficient remuneration.
In support of job placement, UNRWA has
been providing training and education
through vocational training centres and a
network of contracted local providers. A
recent employability survey18 revealed that
the employment rate of VTC graduates in
2012 is 53 per cent. Following the same
trend from 2010-11, VTC graduates are
mostly employable amongst small and
medium enterprises. The TVET unit recently
also began offering grants to sponsor youth
pursuing vocational education to acquire
an official accredited degree. This works in
parallel with the efforts to accredit the
Siblin Training Centre (STC) within the
Directorate of Vocational Education of the
Lebanese Ministry of Education.
Despite a great deal of success, UNRWA
vocational services are still not entirely on a
par with the Lebanese vocational system,
which provides a comprehensive
vocational education track as part of a
holistic education system. To tackle this, in
early 2013 UNRWA started to implement
the new TVET strategy. Its aim is to improve
its TVET centres and the career guidance
provided.
In tandem with TVET and to support the
capacity development of Palestine
refugee youth, the LFO operates a large
number of educational scholarship
programmes. The scholarship unit has
made agreements with high standard
universities to obtain significant discounts in
tuition fees for Palestine refugee students:
40 per cent discounts at Lebanese
International University, 50 per cent
discounts at the American University of
Beirut and Lebanese American University,
and 30 per cent at the University of
Balamand. There was a renewed emphasis
in 2012-13 on encouraging students to go
to high quality universities. As a result,
UNRWA now has eight students studying at
18 UNRWA Programme Support Office - LFO,
―Employability survey of UNRWA‘s vocational training
centres,‖ March 2013.
AUB in 2012-13 academic year compared
to only one student last year.
Directly related to poverty and
employment is the living conditions of
Palestine refugees in Lebanon. Within the
Palestine refugee camps, thousands of
families continue to live in rundown shelters
in the midst of crumbling roads, corroded
sewage pipes and other unacceptable
living conditions. In 2011 5,000 shelters were
deemed in need of rehabilitation
throughout all of Lebanon‘s camps. Of
these, 300 are in need of total
reconstruction, 2,800 need to be partially
reconstructed, 1,300 need major repairs,
and 600 need minor repairs. The total
number of unsafe shelters in all of the
camps is 350.
To tackle this, UNRWA has been steadily
rehabilitating its installations and providing
maintenance to infrastructure networks
(waste water, water supply, storm water,
roads, etc.). So far, UNRWA has
rehabilitated all infrastructure systems in
Burj El-Shamali, El-Buss, Mia-Mia, Dbayeh,
Shatila, Mar Elias, Beddawi and Wavel
camps. In Rashidieh camp, the water
supply system was rehabilitated, though
the camp remains without a waste water
network. The infrastructure system in Ein el-
Helweh, Lebanon‘s largest camp, remains
without rehabilitation. At the end of 2013,
the rehabilitation of infrastructure systems
in Burj El-Barajneh camp will be completed.
UNRWA‘s largest reconstruction project is
that of the Nahr el Bared Camp (NBC).
NBC is the first Palestine refugee camp in
Lebanon ever to be rebuilt, and the
financial, logistical, and political hurdles
facing implementation have been vast.
Among other things, UNRWA has had
difficulties tackling the participatory design
process. In many ways the concept has
been very successful in terms of mapping
needs, engaging the community, and
organising neighbourhoods around urban
blocks or courtyards, yet UNRWA is still
grappling with the process of determining
ownership and entitlements. Much of the
design effort in 2011-12 was spent
reassessing criteria and redesigning
residents‘ homes. However, the
reconstruction of packages 1 and 2 is
almost complete. Over 700 families have
18
returned to their rebuilt homes and 85
shops and associated infrastructure have
been completed. Two blocks in package 3
will be completed by May 2013, enabling
the return of a further 552 families and the
reconstruction of 168 shops. Construction
work will commence in late 2013 in the last
remaining portion of Package 2, other
portions of Package 3 and in the first blocks
of Package 4. The return of 917 families
and the construction of 321 shops is
expected to take place by the end of
2014. With the commencement of these
works, the Agency will have no more funds
to issue further tenders and commence the
construction works in other blocks.
Throughout 2012-13 four schools have
been reconstructed and are now
operational. A fifth school is currently under
construction and will be completed in
January 2014.
Expected results from 2014-15
In its poverty alleviation support, the AUB
survey alerted UNRWA to the vital necessity
of reforming the Special Hardship
Assistance Programme (SHAP) targeting
criteria, as it detected a high incidence of
inclusion of non-poor households among
SHAP recipients and a very high incidence
of under-coverage (the exclusion of the
extremely poor households). According to
the AUB survey, 24 per cent of households
enrolled in the SHAP are non-poor. Further,
a staggering 41 per cent of extreme poor
and 54 per cent of poor households do not
receive assistance from UNRWA.
Based on these findings, the LFO
recognised the need to reform the SHAP
targeting system to serve the neediest first
using evidence-based criteria. This entailed
a set of reforms which have been adopted
throughout the activities of the SHAP as
follows:
Broaden the coverage of the
system to include a higher number
of poor refugees, with no exclusion
of the working poor or the jobless.
Yet this is dependent on the
availability of funds.
Improve the accuracy of targeting
using the database of the AUB
survey as the main platform to
identify the characteristics of the
poor.
Restructure the eligibility criteria in
line with the Proxy Means Testing
Formula (PMTF), which hold strong
statistical correlation to poverty.
Control the rate of leakage of non-
poor and the under-coverage of
the poor.
Minimise the margin of subjectivity
in the assessment, and propose
practices which improve the
transparency of the system.
Form a more effective knowledge
management system.
Moreover, vulnerable refugee families will
be provided with family and child
protection services as needed and the
relief and social services programme will
continue to coordinate and support
planning and delivery of various services
for Palestinians displaced from Syria to
Lebanon to reduce their vulnerability and
restore their dignity.
UNRWA will continue its employment
strategy which seeks to achieve the
following: to enhance the employability of
low-skilled refugees through making
referrals to quality vocational training or
apprenticeship programmes; to improve
the access of Palestine refugees to decent
job opportunities, as well as the knowledge
and capacity to access opportunities for
self-employment; to continually advocate
for the expansion of the legal rights of
Palestine refugees in Lebanon; and to
emphasise the positive contribution that
Palestine refugees make to the Lebanese
economy.
The ESCs will adopt a more ‗employer-
centric‘ approach to their work, the
objective being to build partnerships with
businesses who can begin to rely on the
ESCs as a reliable source of recruitment. In
tandem they will develop a more
structured and organised approach to
their community outreach activities, and
correspondingly increase the channels of
communication with Palestine refugees,
both those who are registered and those
yet to register at the ESCs (through social
media, monthly text messages and
monthly emails). ESC supervisors will
conduct regular registration sessions in
19
‗poverty pockets‘ (areas with over 66 per
cent poverty headcount), in order to
target the poorest and more marginalised
Palestine refugees.
A key priority lies in increasing female
participation and employability. In line with
positive registration figures, the
employment unit will develop female-
focused activities, which will be
implemented by the ESCs in order to
increase female registration, and enhance
their employability. Since the majority of
females registered at the ESCs are highly
educated (vocational training or
university), the ESCs will implement a quota
of 60 per cent of internships being
allocated to females.
In supplementing its employment
outreach, UNRWA has defined four main
priorities in accordance with the overall
TVET strategy, aiming at preparing qualified
graduates to have employment
opportunities in the local and regional
labour market:
Promote inclusive education and
vocational training and facilitates,
enhancing access to vulnerable
groups and female trainees.
Update and upgrade the curricula
and equipment to meet market
needs as well as the training of
instructors in order to develop their
role and their interaction with the
business community.
Develop entrepreneurship and
other soft skills as learning outcomes
in the curriculum. To ensure that
trainees are able to adapt and
develop critical thinking, the VTC
are organising workshops in
coordination with NGO partners.
Increase UNRWA knowledge of
market dynamics in order to offer
updated courses and to
consolidate its partnerships with the
business community.
These priorities are in accordance with the
steps needed for UNRWA to gain official
accreditation from the Lebanese Ministry
of Education for its vocational diploma
and certificates. Moreover, these priorities
also aim at improving the actions
undertaken to alter the overall image of
TVET, since this educational path is
frequently associated with failure and lost
opportunities.
Shelter rebuilding and rehabilitation will
continue to be a strong focus of the
Lebanon Field‘s work across 2014-15. The
rehabilitation of NBC will continue and
UNRWA will continue to find and
implement innovative solutions to the
rehabilitation of sewage and infrastructure
networks. Governance will become one of
the major challenges for NBC camp in
2014-15. NBC will become the first Palestine
refugee camp officially owned by the
Government of Lebanon, and the
relationship between the government and
the camp‘s residents requires further
precision, particularly with regards to the
provision of public services, such as water
and electricity, and tenants rights over the
newly constructed units.
20
GOAL FOUR: Human rights enjoyed to the fullest
Results from the 2012-13 Biennium
Since 2009 UNRWA has resolved to
integrate refugee protection more fully into
its policy development, programme and
project implementation. Accordingly in
2009, the Protection Unit (PU) was formed
to help deliver improved quality in services
to Palestine refugees in an equitable, non-
discriminatory and neutral manner and
identify gaps in service delivery and
protection. The protection unit, which
includes the Operations Support Officer
(OSO) programme, also supports the
implementation of reforms and the rolling
out of pilot projects. The PU has two main
components which were rolled out in 2012-
2013: 1) External advocacy, which is
designed to advance the legal rights of
Palestine refugees in Lebanon, such as the
right to work, access to justice, and
furthering the recognition of non-ID
refugees; and 2) Internal advocacy to
support the integration of minimum
common protection standards in UNRWA
programming and service delivery. Each
geographical area has an OSO and an
OSO assistant representing the PU, who are
responsible for both monitoring and
enhancing the neutrality of UNRWA
installations as well as building the
capacity of UNRWA staff in addressing
protection concerns. OSO teams also
establish and maintain a strong working
relationship with civil society organisations,
including local NGOs and CBOs, working
with the Palestine refugee community in
order to ensure improved access to the
concerns and issues faced by Palestine
refugees, including in sensitive protection-
related areas. This work in the field then
corresponds to input at the programmatic
level to ensure that protection concerns
are mainstreamed throughout UNRWA‘s
programmes, policies, and procedures.
The PU initiated the Legal Aid project in
December 2010, which provides legal
counselling and referral services for
Palestine refugees seeking representation
through accredited Lebanese lawyers.
Through the Legal Aid Project, a
partnership has been established with
Public Interest and Advocacy Centre
Lebanon (PINACLE), which provides
Lebanese lawyers in all geographic areas
and covering all fields of law, to represent
Palestine refugees in civil cases. The OSO
teams, other UNRWA staff and local NGOs
collect preliminary information from
Palestine refugees with legal problems and
refer the cases to the Legal Aid
Coordinator. The PU has established a
strong track-record of success in legal
cases, including five labour law cases
resulting in end-of-service compensation
for Palestine refugee workers, 15 family law
cases, and numerous late ID registration
cases. Such successes are important as
these cases offer a baseline for expanding
Palestine refugee‘s legal rights. Through the
project, the Agency is able to build the
capacity of Lebanese lawyers to address
Palestinians‘ legal issues, particularly those
of the poor. As a long-term goal, the
Agency will develop a more widespread
strategy for educating Lebanese lawyers of
Palestinians‘ legal needs.
The PU has worked intensively to address
the issue of non-ID refugees, which
includes an estimated 3,000 Palestinians
residing in Lebanon without any legal
status. In 2008, the Security General began
the issuance of a Special Identification
Card (SIC)19 to Non-ID Palestinians, issuing
around 1,000 by 2011. However, Non-ID
Palestinians have experienced difficulties
renewing their SIC cards, thus the number
of those holding SIC cards dropped
significantly in 2012.
The implementation of a Family Protection
Initiative (FPI) started in December 2011
with the overall goal of building referral
systems for better access to services for
victims of gender-based violence. The
project, which is being piloted in Tyre and
managed by the OSO Team, seeks to build
the capacity of UNRWA staff, particularly
front-line staff, and implementing partner
NGOs to address GBV. Over the course of
2012, a Family Protection Network was
established bringing together UNRWA focal
points and other service and assistance
providers to identify and coordinate cases
19 The SIC is only valid for only one year. It can be
renewed on an annual basis but approval is not
guaranteed.
21
in confidence. The initial phase of the
project saw the development of a set of
practical tools including GBV survivor
intake and follow-up forms, standard
operating procedures and a database for
case management. All tools complied with
international standards.
UNRWA also developed the Special People
Special Focus (SPSF) initiative to better
serve persons with disabilities and promote
an overall inclusive Agency environment.
In this respect, inclusion does not only imply
physical accessibility issues, it also aims at
changing mindsets and attitudes. Following
the human rights perspective, UNRWA
seeks to actively promote the conditions
for all individuals with disability to fully
realise their rights.
The SPSF initiative is being piloted in Saida
area. A multi-sectoral approach was taken
towards improving internal and external
coordination to enhance empowerment,
participation and inclusion of persons with
disabilities in the Palestine refugee
community in Lebanon. The main focus
during the first year of implementation has
been on awareness and sensitisation
activities to counter prejudice and reduce
intolerance and on enhancing the
inclusive environment of schools. For the
first time, children with disabilities from
specialised organisations have been
included in all recreational activities during
the summer months. In September 2012,
three schools were selected to be pilots
under the SPSF initiative, following the
Inclusive Education model.
In order to address the lack of specialised
services in Palestine refugee communities
as well as the Lebanese, society a joint
effort was made involving SPSF WG
members and the communications
scholarship programme and the Career
and Guidance unit to produce flyers and
hold outreach meetings to promote
social/health professions, including
psychology, occupational therapy, special
educational needs, physiotherapy and
speech therapy among grade 12 students.
Expected results from 2014-15
The PU and OSO will continue to strongly
advocate on behalf of Palestine refugees
in Lebanon and to implement tailored
protection responses identified by staff and
beneficiaries. This will be done directly
through UNRWA and in tandem with CBOs
and other partners. The legal rights of
Palestine refugees – particularly related to
employment and the application of new
legislation – will be the focus of the
Agency‘s advocacy. Equally, the Agency
will continue to advocate on behalf of
non-ID holders and the challenges
associated with the Special Identity Cards.
The SIC does not allow for full rights and
benefits, including civil registration. Due to
legal restrictions, they do not have normal
access to UNRWA services, including full
hospitalisation and SHAP funds. In addition
to advocacy, UNRWA will continue to
support the PU‘s efforts to fill the protection
and services gap for this population.
The FPI will continue, with a focus on case
management and strengthening referral
systems. The SPSF initiative will also
continue, with efforts to strengthen links
between the programme and UNRWA‘s
other programmes and services.
UNRWA will continue to strive for higher
programme alignment with the Agency
Protection Standards while advocating for
the rights of PRS. In addition, registering
Palestine refugees arriving from Syria to
provide access to protection and
emergency services will be a priority in
2014-15.
22
GOAL FIVE: Effective and efficient governance and support
Results from the 2012-13 Biennium
The 2012-13 Biennium saw improvements in
workforce planning primarily through the
annual class formation exercise and
through restructuring exercises in the health
programme. The biennium saw an
increase in the number of IT
applications being used in programme
delivery at hundreds of sites throughout the
country. Changes to the procurement and
logistics office and health programme
have resulted in improved management of
health stocks. Reforms in the safety and
security office have resulted in the
improved use of risk management systems
in decision-making. Improvements in
financial management systems and
procedures during the biennium have
enabled the management to better
monitor and forecast the use of resources.
Strictly enforced austerity measures have
led to some short-term savings, but these
can be expected to have detrimental
ramifications in the long-term.
Reinforcement of communications
structures have improved the Agency‘s
ability to reach out to the community.
Expected results from 2014-15
There will be a continuing need to drive
reforms throughout all of UNRWA‘s
programmes to ensure maximum
efficiency in operations, while also
maintaining high levels of support services.
The Front Office is responsible for sustaining
reforms throughout the biennium as well as
maintaining responsive and reliable
communication with refugees, the host
government, and other stakeholders both
within Lebanon and externally. To support
these goals, in 2014-15 UNRWA will prioritise
the mobilisation of resources for (i)
reconstruction of Nahr El Bared and the
continuing relief and recovery activities;
and (ii) the Agency‘s response to the PRS.
It will continue to strive to bring about
improvements in service delivery despite
forecasting limited additional resources for
Lebanon operations from the General
Fund. This will be done through seeking to
reduce overhead costs and re-
programming available funds to target the
most pressing needs of refugees. Through
the procurement and logistics department
the Agency will strive to more aggressively
target cost-reductions, restructuring the
human resources and business processes
within procurement and logistics staff,
while also improving asset management.
The finance department will ensure timely
and effective financial transactions.
UNRWA‘s relationship with the Palestine
refugee community in Lebanon will be
improved through (i) strengthened
communication with refugees concerning
their rights and services, (ii) strengthened
mechanisms and systems for the handling
of complaints, (iii) increased Agency staff
appreciation that each and every staff
member is accountable to the
beneficiaries, and (iv) bolstering the Field‘s
internal oversight capacity. Through
advocacy, partnerships and programming
the organisation will strive to dismantle
existing barriers between refugees and
Lebanese society and institutions.
An emphasis will also be placed on
sustaining the good relationship that exists
between management and the Agency‘s
staff and representatives. Clear
communication will continue and the
legitimate needs raised by the workforce
will be responded to quickly. Employee
development will be targeted, with training
provided in areas of performance gaps
and the continued roll out of the
Performance Management System.
To support greater decentralisation and
off-site work, the Information
Communication Technology (ICT) office
will increase online and remote access to
UNRWA central applications. Linked to this
will be training courses to upgrade the
capacity and competency of staff
members – from the elementary to the
advanced level. ICT reforms will continue
to be rolled out, including systems related
to the new Enterprise Resource Planning
(ERP) system and data management
software to support programming on relief,
health, camp improvement and
infrastructure and education.
There will be greater pressure on the
Agency to ensure its operations are made
23
increasingly more environmentally friendly.
To this end the Agency will introduce a
recycling project that guarantees that in
return for recycling paper and plastic
related wastes it receives devices for
school children with disabilities.
Overall, security will continue to be a core
concern and service. Lebanon remains an
unstable environment prone to internal
and international conflict. Pressure to
ensure reliable security analysis and to
establish up-to-date contingency plans will
remain high as will the need to improve the
safety and security of area staff in the field
and in installations throughout the
country. SSD will prioritise risk management
support to field emergency preparedness
and response efforts.
24
5 Implementation, Monitoring and Reporting Results
Overall responsibility for implementation of
the biennium plan lies with the leadership
and direction of the Director of UNRWA
Affairs. In accordance with Organisational
Development (OD) principles, while final
responsibility lies with the director of the
field office, roles and responsibilities for the
implementation of the FIP and delivery of
services is delegated to relevant
programme chiefs and managers.
Monitoring and evaluation is an integral
part of programme management. The
UNRWA Results Based Monitoring (RBM)
system is the main tool used for systematic
programme monitoring of biennium plans.
The Integrated Monitoring and Budget
Matrix (Annex 1) includes the indicators
used to monitor the implementation and
progress of UNRWA programmes against
planned targets. The Agency uses
common and field specific indicators to
assess progress.
Field offices conduct quarterly
management reviews using quantitative
and qualitative information at an
operational level. In addition, on a semi-
annual basis the Agency holds a mid-year
results and expenditure review to assess
Agency-wide progress. These reviews aim
to provide an implementation status
update for programmes and support
services against plans.
UNRWA also provides reporting to the
Advisory Commission and its Sub-
Committee in the form of the annual
Harmonised Results Review. This reporting
uses a prescribed sub-set of indicators from
the biennium plans, complemented by a
narrative analysis used to report on
progress and achievements of Strategic
Objectives. The Harmonised Results Report
is produced in accordance with the Aid
Effectiveness Agenda and the Principles of
Good Humanitarian Donorship.
25
Annex 1: Integrated Monitoring and Budget Matrix
NC: Not Collected - : Not Applicable
TBD: To Be Determined FS: Field Specific
Intervention Logic
Monitoring of Results Budget USD (2014-15)
Indicator
Baseline Target General
Funds
Project
Funds
Emergency
Funds
Unfunded
Requirement
GOAL 1: A LONG AND HEALTHY LIFE To be completed by end of June
SO 1: Ensure universal access to quality comprehensive primary health care
Outcome 1.1 Quality
of health services
maintained and
improved
1.1.a) Average daily medical consultation per doctor 94.59 83
1.1.b) Level of satisfaction by direct users with newly
constructed and/or upgraded HCs 0 70
1.1.c) Average consultation time per doctor 3.2 4
1.1.d) No. of Palestine Refugees from Syria (PRS) accessing
UNRWA health facilities (MALE) New -
1.1.e) No. of Palestine Refugees from Syria (PRS) accessing
UNRWA health facilities (FEMALE) New -
1.1.f) Percentage of patients indicate satisfaction regarding
hospitalized services received [FS] 81.80 85
1.1.g) Percentage of hospitalized patients receive quality visits
from UNRWA DMO [FS] 94.59 83
1.1.h) Percentage of patients satisfied with primary health care
services provided [FS] 91 91
Output 1.1.1: Family
health team and
general outpatient
services improved
1.1.1.a) Antimicrobial prescription rate 19.91 17
1.1.1.b) Percentage of preventive dental consultation of total
dental consultation 24.42 35
1.1.1.c) Percentage of 4th grade school children identified with
vision defect 15 15
1.1.1.d) Number of health centres implementing FHT approach 9 27
26
1.1.1.e) No. of consultations for on psychosocial support (Male
PRS) New -
1.1.1.f) No. of consultations on psychosocial support (Female-
PRS) New -
Output 1.1.2 Access to
hospital care ensured
1.1.2.a) Total number of hospitalization (secondary and tertiary) 30,049 31,000
1.1.2.b) Total No. of hospitalization of PRS (secondary and
tertiary) New -
1.1.2.c) Percentage of hospital referrals are self-referred cases
[FS] 34 30
1.1.2.d) Percentage of premature baby in needs of ICN are
receiving ICN treatments. [FS] 100 100
1.1.2.e) Less than 2% of hospitalization is re-hospitalization for
complication during recovery within 30 days. [FS] 2 <2
1.1.2.f) Percentage of admitted cases in secondary healthcare
services meet admission criteria[FS] 95 100
1.1.2.g) Percentage of 2010 quality standards mentioned in the
contract with Haifa(PRCS) hospital are met on time. [FS] 77 100
1.1.2.h) Percentage of new quality standards mentioned in the
contract with Haifa(PRCS) hospital are met on time. [FS] 51 100
1.1.2.i) Percentage of 2010 quality standards mentioned in the
contract with Hamachri (PRCS) hospital are met on time. [FS] 78 100
1.1.2.j) Percentage of new quality standards mentioned in the
contract with Hamachri (PRCS) hospital are met on time. [FS] 66 100
1.1.2.k) Percentage of quality standards mentioned in the
contract with Balsam (PRCS) hospital are met on time. [FS] 74 100
1.1.2.l) Percentage of new quality standards mentioned in the
contract with Balsam (PRCS) hospital are met on time. [FS] 53 100
1.1.2.m) Percentage of new quality standards mentioned in the
contract with Nasra (PRCS) hospital are met on time. [FS] 72 100
1.1.2.n) Percentage of new quality standards mentioned in the
contract with Nasra (PRCS) hospital are met on time. [FS] 48 100
1.1.2.o) Percentage of 2010 quality standards mentioned in the
contract with Safad (PRCS) hospital are met on time. [FS] 70 100
1.1.2.p) Percentage of new quality standards mentioned in the
contract with Safad (PRCS) hospital are met on time. [FS] 46 100
Output 1.1.3 Health
management support
strengthened
1.1.3.a) Percentage of health centres implementing at least one
e-Health module 100 100
27
Output 1.1.4 Drug
management system
in place
1.1.4.a) Percentage of HCs with no stock out of 12 tracer items
91.44 100
Output 1.1.5
Emergency
preparedness
planning
1.1.5.a) Percentage of HCs with emergency preparedness plans
in place 100 100
Output 1.1.6 Health
centres infrastructure
improved
1.1.6.a) Percentage of upgraded HCs meeting UNRWA's
infrastructure security, safety and accessibility standards against
number of all upgraded HCs in the biennium
0 70
SO 2: Protect and promote family health
Outcome 2.1
Coverage and quality
of maternal & child
health services
maintained &
improved
2.1.a) Percentage of pregnant women attending at least 4
ANC visits 87.87 90
2.1.b) Percentage of 18 months old children that received 2
doses of Vitamin A 99.2 100
Output 2.1.1
Comprehensive MCH
services delivered
2.1.1.a) Number of women newly enrolled in Pre-Conception
Care programme 1,431 1,500
2.1.1.b) Percentage of women attending PNC within 6 weeks of
delivery 99.19 98
2.1.1.c) Number of continuing family planning acceptors 14,057 14,000
2.1.1.d) Percentage of HCs with at least one clinical staff
member trained on detection and referral of GBV cases 25 100
Output 2.1.2 School
health services
strengthened
2.1.2.a) Diphtheria and tetanus (dT) coverage among targeted
students 100 100
SO 3: Prevent and control diseases
Outcome 3.1
Coverage and quality
NCD care improved
3.1.a) Percentage of targeted population 40 years and above
screened for diabetes mellitus 10 14.7
3.1.b) Percentage of patients with diabetes under control
according to defined criteria (A1c) 55.6 50
3.1.c) Percentage of patients with hypertension under control
according to defined criteria 60 70
28
Output 3.1.1.
Appropriate
management of NCDs
ensured
3.1.1.a) Total number of new NCD patients in programme (DM,
HT, DM+HT) 2,000 2,500
3.1.1.b) Total number of NCD patients in programme (DM, HT,
DM+HT) 23,000 24,000
3.1.1.c) Percentage of NCD patients coming to HC regularly
with appointment 90 90
3.1.1.d) Percentage of late complication among NCD patients 13 12
Outcome 3.2
Communicable
diseases contained
and controlled
3.2.a) Number of EPI vaccine preventable diseases outbreaks
0 0
Output 3.2.1
Prevention and
control of
communicable
diseases maintained
3.2.1.a) Percentage of 18 months old children that have
received all EPI vaccinations according to host country
requirements 99.2 99.5
3.2.1.b) Number of new TB cases detected 11 15
Output 3.2.2
Environmental health
services and
environmental
infrastructure
maintained/improved
3.2.2.a) Percentage of shelters connected to UNRWA/Municipal
water network 100 100
3.2.2.b) Percentage of shelters connected to public sewerage
network 85 95
3.2.2.c) Percentage of camp residents who have access to
potable water [FS] 90 95
3.2.2.d) Percentage of generated domestic refuse is stored in
refuse bins [FS] 25 40
3.2.2.e) Percentage of garbage disposed of every second day
[FS] 95 95
3.2.2.f) Percentage of shelters connected to properly operating
sewage network [FS] 70 90
3.2.2.g) Percentage of sewage drainage has separate networks
[FS] 22 40
3.2.2.h) Number of storm-water flood days per year [FS] 40 25
GOAL 2: Acquired Knowledge and Skills
SO4: Ensure universal access to and coverage of basic education
29
Outcome 4.1. Basic
education for all
Palestine refugee
children
4.1.a) Cumulative drop-out rates for preparatory education –
male 10.31 8.8
4.1.b) Cumulative drop-out rates for preparatory education –
female 4.55 4.55
4.1.c) Cumulative drop-out rates for elementary education –
male 5.1 5
4.1.d) Cumulative drop-out rates for elementary education –
female 3.68 3.5
4.1.e) Survival rate to the end of basic education – male 81.92 83
4.1.f) Survival rate to the end of basic education – female 90.88 91.4
4.1.g) Internal efficiency of the education programme 0.79 0.85
4.1.h) Level of satisfaction by direct users with newly constructed
and/or upgraded schools 71 85
Output 4.1.1
Education access,
retention and
completion in a
conducive learning
environment
4.1.1.a) Pupil-to-teacher ratio for preparatory education 18.16 18.1
4.1.1.b) Pupil-to-teacher ratio for elementary education 26.44 26.3
4.1.1.c) Input unit costs in the education programme
(disaggregated by rented schools, small isolated Agency
schools, and other schools) 1661 1694
4.1.1.d) Percentage of double-shift schools 3 0
4.1.1.e) No. of PRS students graduating from basic education New -
4.1.1.f) No. of PRS school age children registered New -
4.1.1.g) No. of PRS school age children attending UNRWA
schools
New -
Output 4.1.2 Physical
infrastructure and/or
equipment of schools
provided, maintained
or improved
4.1.2.a) % of existing school buildings upgraded to meet
UNRWA's infrastructure security, safety and accessibility
standards against number of all upgraded school buildings in
the biennium
75 90
30
SO5: Enhance education quality and outcomes against set standards
Outcome 5.1
Improved
effectiveness of the
UNRWA educational
system
5.1.a) Teaching/Learning practices aligned with education
reform New New
5.1.b) Percentage of head teachers that meet or exceed
ratings in their annual performance reviews New 100
5.1.c) Number of teachers that do not hold a degree – male 15 10
5.1.d) Number of teachers that do not hold a degree – female 37 25
5.1.e) Student mean score on MLA – math 4th grade – male 39.12 43.12
5.1.f) Student mean score on MLA – math 4th grade –female 44.21 48.21
5.1.g) Student mean score on MLA – math 8th grade – male 40.26 44.26
5.1.h) Student mean score on MLA – math 8th grade – male 39.74 43.74
5.1.i) Student mean score on MLA – Arabic 4th grade – male 34.71 38.71
5.1.j) Student mean score on MLA – Arabic 4th grade – female 42.19 46.19
5.1.k) Student mean score on MLA – Arabic 8th grade – male 29.4 33.4
5.1.l) Student mean score on MLA – Arabic 8th grade – female 38.62 42.62
5.1.m) Prevalence of Human Rights culture (as defined by
UNRWA Policy) and practices at school level New New
Output 5.1.1
Professional, qualified
and motivated
teaching force in
place
5.1.1.a) Teacher policy being implemented No Yes
5.1.1.b) Percentage of areas where all grade 1-6 teachers have
been trained using the UNRWA-wide SBDT programme 20 100
5.1.1.c) Percentage of areas where all head teachers/school
principals have been trained through the Leading for the Future
training
20 100
Output 5.1.2 Curricula
that are supporting 5.1.2.a) Number of textbooks reviewed at Field level using the
curriculum framework 0 63
31
holistic approach to
learning and personal
development
5.1.2.b) Percentage of areas where all teachers have been
trained in the use of the HRCRT teacher toolkit 0 100
5.1.2.c) No. of education staff trained in delivering emergency
education teaching practices and provision of psychosocial
support
New -
Output 5.1.3.
Evidence-based
policy making and
informed decision-
making at all levels
5.1.3.a) Percentage of schools implementing the school-based
Agency-wide EMIS to report and plan
0 100
SO 6: Improved access to education opportunities for learners with special education needs
Outcome 6.1 Equal
access to quality
education for all
Palestine refugee
children regardless of
gender, abilities,
disabilities
impairments, health
conditions and socio-
economic status
ensured
6.1.a) Inclusive approach embedded in educational practice New New
6.1.b) Percentage of students scoring below 30% on the MLA
test – math – 4th grade – male 40.6 34.6
6.1.c) Percentage of students scoring below 30% on the MLA
test – math – 4th grade – female 23.4 17.4
6.1.d) Percentage of students scoring below 30% on the MLA
test – math – 8th grade – male 26.6 20.6
6.1.e) Percentage of students scoring below 30% on the MLA
test – math – 8th grade – female 26.1 20.1
6.1.f) Percentage of students scoring below 30% on the MLA test
– Arabic – 4th grade – male 46.2 40.2
6.1.g) Percentage of students scoring below 30% on the MLA
test – Arabic – 4th grade – female 28.8 22.8
6.1.h) Percentage of students scoring below 30% on the MLA
test – Arabic – 8th grade – male 59.2 53.2
6.1.i) Percentage of students scoring below 30% on the MLA test
– Arabic – 8th grade – female 27.7 21.7
Output 6.1.1 Credible
policy and tools
supporting inclusive
education
6.1.1.a) Percentage of all children enrolled in UNRWA schools
identified as having a disability 0.32 2
32
Goal 3: A Decent Standard of Living
SO 7: Reduce abject poverty
Outcome 7.1 Ability of
abject poor refugees
to meet their basic
food consumption
needs improved
7.1.a) Percentage of abject poverty line covered, on average,
through UNRWA's social transfer during the quarter
15.41 19
Output 7.1.1 Field able
to identify and classify
poverty amongst
refugees
7.1.1.a) Percentage of SSNP beneficiaries who are abject poor New 15
7.1.1.b) Percentage of abject poor refugees receiving SSNP
social transfer 34.92 37
Output 7.1.2 Abject
poor refugees
provided with food
assistance
7.1.2.a) Percentage of SSNP ration ceiling distributed 99.8 99.9
7.1.2.b) No. of PRS households receiving food assistance NEW -
Outcome 7.2 Poor
refugees' vulnerability
to shocks reduced
7.2.a) Percentage of poor, vulnerable refugees participating in
social protection programmes 50 55
Output 7.2.1 Access to
integrated services
provided to
vulnerable refugees
7.2.1.a) Percentage of vulnerable refugee families referred to
and assisted by other service providers 80 90
7.2.1.b) Percentage of poor, vulnerable refugees assisted by
UNRWA 17.77 30
7.2.1.c) No. of PRS households receiving cash assistance New -
7.2.1.d) No. of PRS households receiving NFIs New -
7.2.1.e) Total number of clients with loans [FS] 180 650
7.2.1.f) Total number of women with loans [FS] 192 400
7.2.1.g) Percentage of youth with loans (18-30) [FS] 14.40 20
Output 7.2.2
Community-based
development
implemented in select
communities
7.2.2.a) Number of community-based development initiatives
undertaken
New 2
33
SO9: Offer inclusive financial services and increased access to credit and savings facilities, especially for vulnerable groups such as women, youth and the poor
Outcome 9.1 Increase
in number of clients
(including vulnerable
groups) accessing
credit and saving
products
9.1.a) Total number of clients with loans
MF PROGRAMME NOT APPLICABLE IN LFO
9.1.b) Total number of women with loans
9.1.c) Total number of youth with loans (18-30)
9.1.d) Total number of refugees with loans
9.1.e) Total number of micro-entrepreneurs with loans
9.1.f) Total number of informal enterprise with loans
9.1.g) Percentage of poor clients
9.1.h) Percentage of low-income clients
Output 9.1.1 Range of
credit products
financed through
(MEC), (MEC+), (SSE),
(SGL) (WHC), (HLP),
(CLP)
9.1.1.a) Total value of lending
9.1.1.b) Number of MEC loans
9.1.1.c) Value of MEC loans
9.1.1.d) Number of MEC+ loans
9.1.1.e) Value of MEC+ loans
9.1.1.f) Number of WHC and SGL loans
9.1.1.g) Value of WHC WHC and SGL loans
9.1.1.h) Number of housing loans
9.1.1.i) Value of housing loans
9.1.1.j) Number of consumer loans
9.1.1.k) Value of consumer loans
9.1.1.l) Number of Youth Start-up loans (YSL)
9.1.1.m) Value of YSL loans
34
SO10: Improve employability
Outcome 10.1
Improved
employment
opportunities for
Palestine refugees
10.1.a) Percentage of graduates employed or continuing their
studies among active job seekers - male 92 92
10.1.b) Percentage of graduates employed or continuing their
studies among active job seekers - female 77 77
10.1.c) Percentage of graduates working in a job in relation to
their training or studying in a relevant field - male 70.8 70.8
10.1.d) Percentage of graduates working in a job in relation to
their training or studying in a relevant field - female 66.3 66.3
10.1.e) Degree of employer satisfaction with UNRWA TVET New 60
10.1.f) Number of focus group discussions with employers New 4
10.1.g) Percentage of SSNP/SHAP students among students
enrolled in VTCs 36 38
10.1.h) Percentage of PWD's Students among students enrolled
in VTCs [FS] New 3
10.1.i) Percentage of the PWS's Students who applied to VTCs
are enrolled [FS] New 80
10.1.j) Employment rate of technical and vocational training
centre graduates [FS] 70 75
Output 10.1.1
Appropriate and
relevant vocational
training in conducive
learning environment
10.1.1.a) Percentage of trade courses that are using
Competency Based Training methodology 100 100
10.1.1.b) Technical training mean score – Male New TBD
10.1.1.c) Technical training mean score – Female New TBD
Outcome 10.2
Reduced
unemployment and
enhanced access to
decent job
opportunities through
10.2.a) Percentage of Palestinian refugees registered in ESC
who found quality jobs [FS] 2.90 12
10.2.b) Percentage of job seekers who found quality jobs out of
total placements [FS] 21.00 50
10.2.c) Number of people with disabilities accessing jobs
through employment support centres [FS] 61 200
35
employment service
centres in 4 areas 10.2.d) Joblessness rate [FS] 56 50
Outcome 10.3
Increased access to
higher education
10.3.a) Number of active scholarships granted by UNRWA and
partners [FS] 396 300
10.3.b) Percentage of scholarship beneficiaries graduating
within the estimated time [FS] 99 99
10.3.c) Number of people with disabilities benefiting from the
scholarships [FS] 0 1
10.3.d) Percentage of Scholarship graduates who find a job in
their field of study within one year after completion of their
studies [FS]
64 65
Outcome 10.4
Increased access to
higher education
10.4.a) Percentage of students benefiting from career guidance
sessions (at least 3 for grades 9 and 12 per scholastic year and
at least 2 for grade 10 and 11 per scholastic year) [FS]
69 85
10.4.b) Percentage of Career Guidance sessions following
standard good practice (incl. methodology used, quality of
information provided, interaction and students participation)
[FS]
78 90
SO11: Improve the urban environment through sustainable camp development and upgrading of substandard infrastructure and accommodation
Outcome 11.1
Vulnerable Families
living in improved
shelters.
11.1.a) Number of identified refugee families living in
rehabilitated shelters 584 2,000
11.1.b) Number of identified absolute and abject poor/SSN
families living in rehabilitated shelters 584 2,000
Output 11.1.1
Reduction in the
number of
substandard shelters
11.1.1.a) Number of substandard shelters rehabilitated
584 2,000
Outcome 11.2
Refugees living in a
progressively
improved built
environment
11.2.a) Number of socio-economic infrastructure projects
implemented based on CIPs 2 7
36
Output 11.2.1
Participatory Camp
Improvement Plans
that integrate physical
and social needs of
community prepared
and updated with
focus on the most
vulnerable groups
11.2.1.a) The top ten priorities of the community are reflected in
the CIP
New Yes
Output 11.2.2 Action
plans prepared and
implemented based
on participatory
Camp Improvement
Plans
11.2.2.a) Number of projects implemented in the Action Plan
against the total number of projects in the Action Plan New 4
Output 11.2.3
Improved physical-
spatial conditions in
the camps
11.2.3.a) Open urban spaces implemented in camps
New
Output 11.2.4
Nahr el Bared camp is
reconstructed
11.2.4.a) Number of residential and commercial units rebuilt [FS] 740 3,471
11.2.4.b) Number of schools and HCs reconstructed [FS] 4 7
11.2.4.c) Number of families returned to their home [FS] 655 3,225
GOAL 4: HUMAN RIGHTS ENJOYED TO THE FULLEST
SO12: Ensure service delivery meets the protection needs of beneficiaries, including vulnerable groups
Outcome 12.1
Protection needs are
integrated through all
aspects of
programming and
delivery of services
12.1.a) Degree of alignment with UNRWA protection standards
across all aspects of programming 43 50
12.1.b) Emergency response contingency plans updated in
coordination with UN agencies and NGOs New -
Output 12.1.1 Persons
in need of legal aid for
civil cases receive
support from UNRWA
12.1.1.a) Number of legal services provided by UNRWA‘s legal
aid programme [FS] 250 600
Output 12.1.2 Children
and women subject to
12.1.2.a) Number of detected cases by family protection group
[FS] New 70
37
violence in the
community receive
appropriate material,
psychological and
livelihoods support
12.1.2.b) Percentage of cases accepted to be referred out of
detected cases [FS]
75 75
Output 12.1.3 Special
People receive
support from UNRWA
12.1.3.a) Number of PWDs cases identified [FS] New New
12.1.3.b) Percentage of PWD's provided with assistant from
those who are identified [FS] New New
SO13: Safeguard and advance the rights of Palestine refugees by promoting respect for human rights, international humanitarian law and international refugee law
Outcome 13.1
Awareness and
respect for the rights,
safety and dignity of
Palestine refugees
increased
13.1.a) Percentage of UNRWA interventions on protection issues
that prompted positive responses by authorities or other target
audience NC 30
13.1.b) No. of PRS provided with counselling assistance
New -
SO14: Strengthen refugee capacity to formulate and implement sustainable social services in their communities
Outcome 14.1 Field‘s
relationship with
UNRWA CBOs
regularized
14.1.a) Percentage of CBO stipends applied to partnership
activities New 60
Output 14.1.1 Strategy
for regularizing
relationship with
UNRWA CBOs
implemented
14.1.1.a) Number of partnerships established with UNRWA CBOs
New 6
SO15: Ensure Palestine refugee registration and eligibility for UNRWA services are carried out in accordance with relevant international standards
Outcome 15.1
Palestine refugee
status and
entitlements to
UNRWA services
protected
15.1.a) Percentage of families issued with a family registration
card
58 80
38
Output 15.1.1 Reliable
information on
refugees collected
and stored
15.1.1.a) Percentage of family records updated with address
information 35 60
GOAL 5: MANAGEMENT AND SUPPORT SERVICES – indicators remain under consideration
SO16: Provide leadership, strengthen governance and foster partnerships
Outcome16.1
Effective leadership
and direction
provided for
achieving all goals
16.1.a) Degree to which Human Development Goals are
achieved during the biennium TBD 100
16.1.b) Percentage of UNBOA and DIOS audit findings
(accepted and) satisfied of total made - 100
16.1.c) Monitoring of implementation plans through semi-
annual Results reviews 2 4
16.1.d) Six-monthly Agency Expenditure Reviews are conducted 2 4
Output 16.1.1 Risk
management plans
contain mitigating
actions and coping
mechanisms in place
16.1.1.a) Periodic review of risk registers 2 4
16.1.1.b) Degree of completion of the annual work plan for DIOS
SO17: Develop and sustain UNRWA, enabling it to carry out its mandate
Outcome 17.1 Ensure
optimal support
services provided to
stakeholders Agency-
wide
17.1.a) Degree to which ASD indicators are achieved during the
biennium
60 100
Output 17.1.1 Ensure
appropriate goods,
commodities and
services are available
to UNRWA
beneficiaries in a
timely and cost
efficient manner
17.1.1.a) Average processing time for issuing a tender 19 18
17.1.1.b) DIFOTIS 85 90
17.1.1.c) Aged-Purchase orders 12.5 10
17.1.1.d) Inventory accuracy rate 99.07 99.07
17.1.1.e) Percentage vehicle availability 85 90
17.1.1.f) Repair time efficiency compared to manufacturer New TBD
39
standard maintenance times
17.1.1.g) Fuel consumption/mile/vehicle New TBD
17.1.1.h) Percentage of vehicles which fulfils one or two
retirement criteria New TBD
17.1.1.i) Average lead time for procurement requests / Local LTA
[FS] 1 1
17.1.1.j) Average lead time for procurement requests /Overseas
LTA [FS] 1 1
17.1.1.k) Average lead time for procurement requests / Medical
Overseas [FS] 5 2
17.1.1.l) Average lead time for procurement requests /local
purchase items [FS] 40 20
17.1.1.m) Percentage of vehicle downtime / Passengers [FS] New TBD
17.1.1.n) Percentage of vehicle downtime / Freight [FS] New TBD
17.1.1.o) Compliance to food ration distribution schedule [FS] 100 100
17.1.1.p) Percentage of aged Purchase Orders – Monitors
consignments that are overdue the contracted delivery dates
[FS]
3 3
Output 17.1.2 To
institutionalise and
optimise the Security
Risk Management
System
17.1.2.a) Percentage of security risk management plans
updated and adhered to 0 100
17.1.2.b) Percentage of requirements of the accountability
framework adhered to. 0 100
17.1.2.c) The number of incident reports raised by UNRWA
installation managers [FS] 1,000 1,000
17.1.2.d) Percentage of cases closed based on the number of
incident reports received [FS] New 80
Output 17.1.3 Provision
of effective and
efficient ICT
management and
support services to
UNRWA in fulfilling its
17.1.3.a) Percentage of user satisfaction collected through
periodical surveys 84 90
17.1.3.b) Reduction of the system errors (subject to acquisition of
the help-desk tracking tool) 2 2
17.1.3.c) Number of the interruption time of the SMS system [FS] New New
40
mandate towards the
Palestine refugees
17.1.3.d) Number of the interruption time of the e-health system
[FS] New New
17.1.3.e) Number of the interruption time of the RRIS system [FS] New New
Output 17.1.4 Efficient
general services
provided
17.1.4.a) Number of obsolete and surplus assets cleaned from
the system [FS] New 0
17.1.4.b) Increase in the number of beneficiaries (PWD's) from
environmental friendly projects [FS] 5 8
17.1.4.c) Inter-agency communication cost [FS] New 0
Outcome 17.2. To
develop a skilled and
diverse workforce,
equipped and
motivated to provide
high quality human
development
programmes to
Palestine refugees
17.2.a) Degree to which HR indicators are achieved during the
biennium
82 100
Output 17.2.1
Enhanced HR services
and HR Management
processes with regards
to staffing and
recruitment,
performance
management and
reward, staff
development and HR
planning
17.2.1.a) Cost of area staff vs budget New TBD
17.2.1.b) Number of FTEs: actual vs budgeted posts New TBD
17.2.1.c)Unplanned vacancies: # of days between
advertisements and selection decision (area staff) (HQ & fields) 117 90
17.2.1.d) Percentage of female staff in grade 16 and above 11.63 30
17.2.1.e) Percentage of female applicants for posts grade 16
and above New TBD
17.2.1.f) Percentage of female appointments for posts grade 16
and above New 70
17.2.1.g) % of planned evaluations of staff development
/training activities (for application of learning in the workplace)
that take place
New 70
41
17.1.h) Percentage of total Field staff that have completed the
online ethics training New 75
17.1.i) Percentage of staff who have completed their end of
cycle review on time (teachers) 60 100
17.1.j) Percentage of staff who have completed their end of
cycle review on time (non-teachers) New 100
42
Annex 2: Financial Performance by Resources (Staff Costs and Non-Staff Costs)
To be completed upon finalisation of budget process and UNRWA Blue Book (estimated 30 June 2013)
43
Annex 3: Table of Priority Projects
Priority
2014-15
Project Title Human Development
Goal
Output (Description) Budget
2014-15 (USD)
1
Shelter rehabilitation for the most
vulnerable families in Palestine
refugee camps throughout
Lebanon
A Decent Standard
of Living
The shelter rehabilitation program will
facilitate the construction and
rehabilitation of shelters for the 5,000 most
impoverished Palestine refugee families in
Lebanon through the self-help approach
$44,000,000
2
Lebanon Operations Support
Officers Programme and ―Play
and Learn‖ Summer Activities in
Lebanon
Human Rights
Enjoyed to the Fullest
Knowledge and Skills
Supporting and enhancing the neutrality
of UNRWA‘s installations and service
provision lies at the heart of the OSO
programme in Lebanon. At the request of
the community, UNRWA organizes the
‗Play & Learn‘ project which provides
thousands of children from UNRWA camps
with an opportunity to participate in
recreational activities during the school
summer holidays.
$ 3,637,724
3
Legal Aid to Palestine Refugees Human Rights
Enjoyed to the Fullest
The aim of the project is to enhance
access to justice for Palestinian refugees.
This is achieved first and foremost by the
establishment of a referral system whereby
Palestinians who are in need of legal
representation and cannot afford this are
referred to accredited Lebanese lawyers.
$255,428
4 Nahr el Bared Camp
Reconstruction
A Decent Standard
of Living
Reconstruction of NBC $157,000,000
5 Nahr el Bared Camp Relief and
Recovery Programme
A Decent Standard
of Living
Relief and recovery services to the
displaced population of NBC
$23,220,000
Total US$228,087,724
44
Annex 4: Risk Management Plan for Implementation Plans – Top Risks *
Event Causes Consequences Mitigation/coping mechanisms Risk Management Monitoring
Strategic/programmatic
Agency Wide
-Implementation targets
not met
-Effectiveness in
management and
governance declines
- Change (reforms) failure
- Inadequate assessment, planning
and monitoring of implementation
plans, projects and/or reform
strategies
- Resistance or lack of ownership to
targeted results
- Lack of capacity to implement
biennium plans / reform strategies
- Decrease in compliance with UNRWA
norms and standards
- Stakeholder apprehension to
adjustments in service delivery
- Organisational change/reform
fatigue
- Failure to meet and/or
demonstrate results to
stakeholders
- Status quo maintained
- Increased transition costs
and time lines for reforms
- Increases in risk profiles
across UNRWA ‗Top Risks‘
- Periodic programmatic and financial
monitoring for implementation plans
and/or reform strategies
- Communication with key stakeholders
(staff, beneficiaries, hosts and donors )
in the reform process
- Institutionalisation of project /
programme cycle management
- Regular biennium plan
implementation monitoring through
Field-based Quarterly Management
Reviews and semi-annual Results
Reviews
- Regular monitoring of reform strategies
through annual reports
- Periodic review and update of UNRWA
‗Top Risks‘
- Establishment of an internal
communication policy and action plan
Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks)
- Incomplete
reconstruction of Nahr El
Bared project
- Lack of resources from donors to
finalise the construction
- Socio-political impediments
- Continued displacement
of Palestine refugees in
North Lebanon
- Continued dependency
on relief needs
- Pressure on hosting
communities
- Increased frustration and
desperation leading to
unrest
- Augmented fundraising efforts for relief
and reconstruction appeals
- Continued advocacy and
engagement with Government
interlocutors concerning the
importance of the project
- Communication and engagement of
community
- Percentage of camp rebuilt or under
construction
- Access amongst displaced population
to; shelter, medication for acute and
chronic illness
- Level of food insecurity and poverty
amongst displaced population
Number of safety and security incidents
against staff related to Nahr El Bared
45
Event Causes Consequences Mitigation/coping mechanisms Risk Management Monitoring
Financial
Agency Wide
-Shortfall in donor aid
commitment (i.e., General
Fund, Emergency Appeal,
and/or projects)
-Decline in purchasing
power
-Efficiency of expenditures
declines
- Donor fatigue
- Competition from other
emergencies or regional issues
- Increase in demand for services
- Price increases for goods and
services
- Incorrect financial management
and discipline
- Project(s) implemented with
recurring cost implications to GF
- Reduced donor contributions
- Increased income requirements
- Funding gap widening
- Inability to deliver services per
UNRWA mandate
- Inability achieve planned results
- Reduction in quality, decline in
reputation in UNRWA
- Strategic approach to fund raising
- Regular dialogue with donors and
hosts
- Maintain robust financial and
management reporting systems
- Accountability of budget holders
- Aligned programme and budget
planning
- Robust and transparent budget
allocation processes
- Prioritisation of projects
- Implementation of the Resource
Mobilisation Strategy
- Regular dialogue through AdCom and
SubCom scheduled forums
- Development of an Accountability
framework (that includes approach for
accountability to our beneficiaries)
- Budget hearings, project prioritisation
processes held annually
Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks)
- - - -
- Funding received versus funding
requirements for reconstruction of Nahr
El Bared
Event Causes Consequences Mitigation/coping mechanisms Risk Management Monitoring
Hazards
Agency Wide
-Man-made conflict and/or
natural disasters
-Personnel safety and
security
- Unjust or inequitable shifts in
geopolitical environment as
perceived by stakeholders
- Area staff rules and regulations for
- Evacuation of international staff
- Increased incidents of violence,
accidents and/or damage
and/or loss of UNRWA assets
- Establish field-specific plans to
mainstream safety and security
- Conduct training for personnel in
safety/security assessments, first aid
- Implementation of the Security
Information Management System
- Conduct periodic training in safety
and security for identified personnel
46
safety and security are not covered
by UNSMS framework
- Lack of infrastructure
maintenance leads to unsafe
working conditions
- Staff insecurity and potential for
loss of life and/or limb
- Lack of adequate duty of care
standards on safety and security
- Disruption to service delivery
and provision of appropriate tools
- Strengthen safety and security
personnel with capacity
- Ensure planned safety and security
staff posts are filled
- Maintain the UNRWA emergency staff
roster
Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks)
-
- Internal conflict within Palestine
refugee population
- Regional socio-political events
- Increased internal
displacement
- Destruction of homes and
public facilities (primarily inside
camps).
- Emergency Preparedness Plans in
place at country-level and area-level.
- Minimum Preparedness Actions
completed.
- UN security level system rating
Event Causes Consequences Mitigation/coping mechanisms Risk Management Monitoring
Operational
Agency Wide
- Lack of human
resources/capacity
- Sustained disruption
and/or inadequacy of
information,
communication and
technology services (ICT)
- Procurement related
fiduciary risks
-Breach (real or perceived)
in neutrality
- Non-competitive salaries , benefits,
lack of training and/or career
development opportunities
- Inability to match market
conditions in specialised areas
- Lack of capacity and/or resources
in ICT support functions
- Poor oversight and/or processes
in place
- Misuse of goods or assets for
activities other than those intended
- Inability to achieve desired
organisational goals
- Low morale, industrial action,
increased attrition rates, and
recruitment challenges
- Loss of institutional memory,
including business continuity
- Poor systems in place to
support service delivery and
informed decision making
- Increase in audit findings
related to fiduciary risk
- Adequate workforce plans for filling
vacancies with internal staff
- Salary surveys are used to monitor
pay scales
- Proactive staff development is
undertaken
- Business continuity plans are made for
critical systems (including secondary
and tertiary redundancies)
- Robust auditing mechanism in place
- Investigate complaints regarding
breeches in neutrality
- Unplanned vacation rate, days lost to
strike action
- Annual work plan for DIOS in place
- Trainings conducted on neutrality and
ethics (e.g., induction course, ethics
course, and installation manager
training)
Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks)
- - - - -
47
Event Causes Consequences Mitigation/coping mechanisms Risk Management Monitoring
Socio-political
Agency Wide
- Unfavourable changes in
regulatory environment
- Beneficiary expectations
- Political motivations exploiting the
principle-agent paradigm
- Lack of understanding of UNRWA
mandate, rules and regulations
- Lack of communication and/or
misinformation regarding UNRWA
goods and services provision
- Expanding needs due to socio-
economic situation
- Increase in administrative
burden and transaction costs
due to increase in complaints
- Unfavourable media coverage
targeting UNRWA
- Interference in procedures and
policies from external
stakeholders
- Demands for increasing existing
service provision or new
programmes
- Conduct and/or ensure that trainings
are undertaken on guidance on
neutrality or embedded in relevant
training sessions
- Maintain robust dialogue with
stakeholders
- Maintain a community participatory
approach in service delivery
- UNRWA Representative Offices are
engaged to facilitate dialogue with
interlocutors and stakeholders
- Periodic scanning of environment and
regular updates in Management
Committee Meetings
Field Specific (unique risks and/or related actions undertaken by the Field Office to mitigate high likelihood and high impact risks)
- Sustained and continued
influx of refugees due to
the crisis in Syria
- Adverse changes in the level of
safety and security
- Predictability of and access to
basic services
- Increased demands for
education and health services
that results in increased for
staffing, and supplies
consumption
- Needs of different forms of relief
assistance such as; food, cash for
housing and NFIs
- Demands on the Agency to
open/run collective centres
- Increased pressure on hosting
community capacity
- Integrated crisis planning and
fundraising and response plans
- Maintain coordination through various
mechanisms with other UN agencies
and international organisations
- Periodic updates to the UNRWA Syria
Crisis Response plan
* All events in risk register considered high likelihood and high impact
Department of Planning
Headquarters - Amman
Amman, Jordan
Tel: +962 (6) 580 2512
www.unrwa.org
www.unrwa.org