REFUGEE

COORDINATION MODEL
UPDATED GUIDANCE
October 2024
RE FUGEE CO O R D I NAT I O N M O D E L | U PDAT E D G U I DA N C E

Guidance for joined-up action for refugees and

their hosts
This 2024 guidance contains updated information
regarding the Refugee Coordination Model (RCM)
and ways to forge complementary partnerships in
refugee responses based on capacity, expertise and
predictability. It also includes links to tools and
additional resources to assist operations – the
complete repository is available on the
RCM guidance website

Cover photograph:
Relief item kits are distributed to newly arrived
Sudanese refugees at the Madjigilta site in Chad’s
Ouaddaï region, on the border with Sudan.
© UNHCR/Colin Delfosse

https://www.unhcr.org/handbooks/rcm/

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CONTENTS

FOREWORD  4 EVALUATION28

EXECUTIVE SUMMARY 5 WORKING EFFECTIVELY WITH

EXISTING COORDINATION
PURPOSE AND RATIONALE 8 SYSTEMS29
LEADERSHIP AND COORDINATION Mixed refugee and IDP situations 29
ACCOUNTABILITIES  10 Mixed refugee and migrant movements  31
State responsibility 10 UN development coordination  31
UNHCR’s accountabilities and role in inter- UN peacekeeping and integrated peace-
agency refugee responses 10 keeping missions  32
Core principles in RCM coordination 12
WORKING EFFECTIVELY WITH
DEVELOPMENT ACTORS FROM THE
ACTIVATION OF A REFUGEE
START  33
EMERGENCY RESPONSE SCALE-UP
PROTOCOL  16 Collaboration across humanitarian-develop-
ment-peace (HDP) work 33
RCM COORDINATION STRUCTURE  17 Engaging development actors and interna-
Regional Refugee Coordination Forum tional financial institutions (IFIs)  33
(Regional RCF) 19
Refugee Coordination Forum (RCF) 19 TRANSITION  34
Inter-Sector Working Group (ISWG)  20
Technical working groups and task forces for
ANNEX I: REFUGEE EMERGENCY
cross-cutting priorities 20
RESPONSE SCALE-UP PROTOCOL 35
RCM sector working groups 22 ANNEX II: REFUGEE RETURNEES:
Other working groups 25 COORDINATION AND RESPONSE  39

REFUGEE OPERATIONS
MANAGEMENT CYCLE 26
Inter-agency needs assessments  26
Data and information management (IM)  26
Refugee Response Plan (RRP) 26

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FOREWORD

What does accountable, inclusive, and transparent coordination look like?

That was the animating question for UNHCR and all our partners as we worked,
together, to update our guidance on how to respond to refugee emergencies, in an
effective and collaborative manner. This Refugee Coordination Model guidance is the
product of that work.

The humanitarian landscape has changed considerably since 2019. Forced

displacement has increased in scale – more people are displaced than ever – and in
complexity: conflicts last longer, the effects of climate change have become more
pronounced, and solutions to displacement are few and far between.

How we respond to humanitarian crises has also changed – it is no longer the remit
of humanitarian actors alone. To respond effectively today means bringing together
all stakeholders – national and local authorities, donor partners, civil society, the
private sector, development and peace actors, academia, the UN, refugees,
everyone – and recognizing their distinct though complementary roles.

Only by acting in concert can we ensure that collective efforts not only meet the
most urgent needs, but that these efforts are sustainable and serve to build refugees’
self-reliance so they can contribute to the communities that host them. Effective
coordination requires that refugees, and their hosts, play an integral part in the
process, and that they be empowered to make decisions that shape their lives.

This updated coordination model enables us to achieve that, from the initial phases
of a refugee emergency to longer-term, solutions-oriented programming. This update
was guided by the need to strike a balance between predictability and flexibility.
Coordination cannot be one-size-fits-all. It must take into account local needs and
allow for context-specific responses that respect and strengthen local coordination
mechanisms.

The Refugee Coordination Model also aligns with and complements broader UN
reforms. It will strengthen the coherence between development coordination and
refugee response, including by ensuring clarity of roles and responsibilities.

As we move forward, let us remain committed to upholding the rights of forcibly

displaced and stateless people. Together, we will continue to build a more inclusive
and resilient future for all.

Filippo Grandi
UN High Commissioner for Refugees

October 2024

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EXECUTIVE SUMMARY

Updated RCM guidance:

a comprehensive approach to refugee
coordination
Coordination is at the heart of UNHCR’s mandate and
key to mobilizing support in pursuit of protection and
solutions for refugees. For over a decade, the Refugee
Coordination Model (RCM) has provided the blueprint
for UNHCR and inter-agency partners to support
governments in protecting and assisting refugees
worldwide. The 2024 updated RCM guidance builds on
previous iterations and addresses recent developments
in the inter-agency landscape.

UNHCR has exercised leadership and coordination

responsibilities in refugee situations for decades.
However, it was not until 2013, with the introduction of
the RCM, that the organization developed a model
ensuring accountable, inclusive, predictable and
transparent coordination in responding to refugee
situations. The RCM articulates the standard elements of
coordination within these settings and underscores the
importance of inclusive and transparent leadership.

In 2019, several developments warranted the issuance

of further guidance. Amongst these developments were
the General Assembly’s affirmation of the Global
Compact on Refugees (GCR) in 2018 and the positive
experiences in adapting the RCM to a range of situa-
tions, including mixed refugee and IDP emergencies,
and movements involving refugees and migrants.

The 2024 update comes at a time of profound transfor-

mation affecting not only UNHCR but also the landscape
in which we operate. It builds upon over 10 years of
lessons learned from RCM implementation, which has
emphasized that when approached correctly, coordina-
tion can significantly contribute to better outcomes for
refugees and the communities hosting them.

The updated guidance highlights and speaks to key

GCR principles, including the primacy of government
leadership and the importance of promoting a whole-of-
society approach. It also underscores the centrality of
protection to the RCM. It emphasizes the importance of
coherent humanitarian-development-peace approaches
and sustainable programming, with UN agencies and
partners working together to avert conflict, sustain
peace, and foster development, ensuring that refugees
are meaningfully engaged in all phases.

Jordan: Tawjihi (end of high school) students in

UNHCR, October 2024 Zaatari Camp. © UNHCR/Shawkat Alharfoush5
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2024 RCM guidance – what has changed?

1. It includes a new Refugee Emergency Response Scale-up Protocol

Emergencies demand swift action. The newly developed refugee protocol sets clear timelines and
critical steps to develop a collective response from the outset of a refugee emergency. From appointing
a Refugee Coordinator to establishing coordination structures within days, it streamlines the response
and makes it more inclusive and predictable.
REFUGEE PROTOCOL TIMELINE

72 hours 1 week 6 months

Emergency Activation Launch of the emergency RRP End

Exceptional 3 month
Assessment Scale-up protocol
extension
Coordination system is confirmed
UNHCR Country Representative Upon activation, the UNHCR High
provides initial assessment to Commissioner will:
UNHCR High Commissioner, in • Designate a Refugee Coordinator
consultation with partners, with • Notify the ERC, IASC Principals,
recommendation to activate the UNSDG Chair and other
protocol. stakeholders

Response to the emergency starts immediately and does not wait for Protocol activation and, likewise, the
response does not end with the Protocol expiration but rather continues as the context requires.

description of each sector working group, and

suggested entities in order of preference for
leading each group. Yet each operation is free
2. It strikes a better balance between to select and adapt among these options
predictability and flexibility according to the needs, capacities, and
The 2024 RCM guidance still embraces medium- to long-term strategic plans in their
adaptability and flexibility of the coordination context.
mechanism to support the host government
and host communities to respond to the
refugee emergency. But it now does so within
an explicit set of parameters, strengthening
predictability and expanding inclusivity.
3. It encourages thinking about solutions
Recognizing that no two crises are identical, it
from the start & sustainable programming
encourages leadership that responds
contextually. Whether in sudden emergencies The updated guidance is aligned with the
or protracted situations, the RCM provides sustainable programming approach and builds
thorough guidance that allows for nuanced, on experience from putting the Global
context-responsive approaches. This flexibility Compact on Refugees into operation. It
ensures that coordination remains effective, promotes resilience, solutions from the start of
even as circumstances shift. For example, the an emergency, and inclusion, and it outlines
guidance now includes a maximalist sample steps to ensure that the coordination structure
structure of the coordination architecture, a remains fit for purpose as the operational
response changes.

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Inclusion from the start remains paramount to

avoiding the creation of parallel systems and
subsistence programmes that foster depend-
ency. The updated RCM guidance also 6. It includes a new curated website for
promotes investments in emergency prepared- practitioners with tools and resources
ness and early engagement with development A publicly available RCM guidance website
actors, which results in better allocation of complements the updated guidance
resources and better coordination of inter- document. The website serves as a one-stop-
agency efforts, helping with a smoother shop for practical tools and templates for
transition to a post-emergency programme. setting up and running a coordination system,
including sample working group terms of
reference and sector-specific technical
guidance. As an inter-agency resource, the
website is open to contributions from other
agencies and future inter-agency-developed
4. It embraces more stakeholders, especially
products that further detail best practices and
local ones
agreed ways of working.
In the spirit of the Global Compact on
Refugees, the RCM guidance highlights the
benefits of engagement with a diverse range
of stakeholders beyond the traditional actors, Conclusion
including local governments, civil society, and The 2024 RCM guidance reaffirms government
private sector. It promotes the meaningful leadership in refugee responses and UNHCR’s
participation of refugees and host communities mandated accountability for refugee coordination.
at all stages of the programme cycle, to We do so collaboratively—with governments,
collectively play pivotal roles to safeguard that partners, RCs/HCs, refugees, host communities, and
no one is left behind. It supports the establish- donors. Advocacy and resource mobilization are our
ment of RCM local platforms, giving more tools through joint launches, improved funding
space to municipalities, local communities, and tracking, and transparent reporting.
refugee-led organizations to coordinate and
optimize the local resources for a better and The 2024 RCM guidance is more than ink on paper. It
more localized refugee response. sets out a recalibrated framework that is fit for
purpose, agile and strategic, ensuring that the
protection and assistance of refugees and the
communities hosting them remain at the forefront of
our collective efforts. As we navigate crises, adapt to
climate realities, and engage diverse partners, the
5. It strengthens the humanitarian- RCM remains our guide to coordinate refugee
development-peace connection responses worldwide.
The updated guidance explains in more detail
how the RCM interacts and works in comple-
mentarity with other coordination mechanisms.
These include mixed IDP and refugee situa-
tions, mixed movements of refugees and
migrants, and the Resident Coordinator and
Development Coordination Office coordination
structures. The RCM aligns with broader UN
reforms. As the development landscape
evolves, the RCM adapts to bridge the humani-
tarian-development divide, recognizing that
sustainable solutions require holistic
approaches. By integrating peace efforts, the
RCM becomes a catalyst for positive change.

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PURPOSE AND RATIONALE

Since its establishment, UNHCR has led and coordi- tion to avert conflict, sustain peace and foster
nated responses to refugee situations, in line with its development. UN entity representatives, including
mandate. This responsibility and related accountabili- UNHCR’s, are expected to work towards the common
ties were later reflected in the Refugee Coordination goals articulated in the 2030 Agenda for Sustainable
Model (RCM), introduced in 2013 and updated in Development and through UN Sustainable Develop-
2019 following the UN General Assembly adoption of ment Cooperation Frameworks (Cooperation
the Global Compact on Refugees (GCR) in 2018. The Frameworks).
GCR presents a comprehensive refugee response
The Global Compact on Refugees (GCR) has given
framework (CRRF) and programme of action for
new impetus to the global search for solutions for
protection, solutions, meeting needs and supporting
refugees and bolstered national ownership. The GCR
communities. Likewise, the RCM builds on govern-
recognizes the leadership of the host government
ments’ central role in leading refugee responses and
and the work of local authorities, community leaders
provides UNHCR and partners with the blueprint to
and traditional community governance institutions,
support government response coordination and
who are often the first responders to large-scale
implementation. It sets out partners’ shared duty to
refugee situations and will be in place over the
protect and assist refugees within an integrated
long-term. The GCR recognizes the critical role of
protection and solutions vision and it outlines roles
civil society organizations, including those that are
and responsibilities to deliver collective results. The
led by refugees, women, youth or persons with
RCM allows for adaptation of leadership, coordination
disabilities, in assessing community strengths and
and planning approaches to various contexts.
needs, inclusive and accessible planning and
Since the formalization of the RCM, refugee crises programme implementation, and capacity develop-
have become more multidimensional and protracted. ment, as applicable.
They often overlap or occur simultaneously in
The GCR has also highlighted UNHCR’s catalytic and
contexts involving internally displaced people (‘mixed
supportive role in contributing to the task of all States
situations’), host communities and refugee returnees,
and other stakeholders to mobilize support for more
or can take place within mixed movements of
predictable and equitable burden- and responsibility-
refugees and migrants. Moreover, the adverse
sharing. The international community has accrued
impacts of climate change and environmental
experience and examples of good practice applying
degradation have emerged as factors that exacer-
the GCR over the years, including through pledges
bate refugee needs and complicate return
aimed at advancing the GCR objectives. Refugee
conditions. Addressing these impacts through
response interventions are increasingly extending
investment in climate resilience, community-based
beyond humanitarian action to foster resilience and
preparedness measures and environmentally sustain-
engagement that delivers sustainable solutions,
able responses are increasingly crucial in managing
prompting the early involvement of development
refugee crises.
actors and the broader array of stakeholders
The inter-agency landscape has also been evolving, committed to the GCR. This includes but is not limited
with reforms to the UN Development System, to international organizations within and outside the
including the reinvigorated, empowered and impartial UN system, as well as local and national actors.1
RC system, and to the UN peace and security pillar.
Within this context, a recalibrated RCM will ensure it
These reforms seek coherent action across the
remains fit for purpose, agile and strategic in its
system, with UN agencies and partners working
approach to protect and assist refugees. This
through humanitarian-development-peace coopera-
updated guidance:

1. As per the GCR, stakeholders include: the International Red Cross and Red Crescent Movement; other humanitarian and
development actors; international and regional financial institutions; regional organizations; local authorities; civil society,
faith-based, and refugee-led organizations; academics and other experts; the private sector; host community members and
refugees themselves. See: UNHCR, Global Compact on Refugees Booklet, December 2018.

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■ reaffirms government leadership in refugee

responses, as well as UNHCR’s accountability
and responsibility for refugee coordination, as
defined in the UNHCR Statute and subsequent
General Assembly Resolutions;
■ recalls principles and approaches underpinning
refugee responses, including the meaningful
participation of refugees and host communities in
all aspects of the response;
■ introduces the Refugee Emergency Response
Scale-up Protocol, which establishes high-level
roles and procedures for a more predictable and
inclusive collective emergency response from
the outset of a refugee emergency;
■ explains in more detail how the RCM interacts
and works in complementarity with other coordi-
nation mechanisms and systems (including the
IASC/cluste, development, mixed movements,
etc.);
■ incorporates IASC/cluster information on building
resilience and solutions from the start for
refugees, refugee returnees and their hosts, as
well as outlines considerations for transitioning
into other coordination and response models to
support mid to longer-term responses; and
■ includes links to a new RCM guidance website
with detailed guidelines, templates and other
resources to support UNHCR, inter-agency
partners and others in implementing the RCM
and refugee response planning, coordination and
resource mobilization.

Uganda: WASH in Nakivale

© UNHCR/Esther Ruth Mbabazi

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LEADERSHIP AND COORDINATION ACCOUNTABILITIES

This section lays out the fundamental aspects of partners will work with national and local authorities
leadership and accountabilities in the RCM. It to bolster their operational capacity and link up with
considers the evolution of the response from the State coordination mechanisms to avoid creating
emergency or scale-up phase to transition arrange- parallel systems for refugee assistance and service
ments, while noting that every response is provision.
context-specific and can vary in duration. For this
UNHCR will take an operational leadership role only
reason, associated coordination structures need to
when State authorities lack the capacity to lead the
be flexible and fit for purpose.
refugee response, and will mobilize support to
develop the host State’s capacity.
State responsibility
States have the primary responsibility for: ensuring UNHCR’s accountabilities and role in
access to their territory for people fleeing conflict and inter-agency refugee responses
persecution; protecting and assisting refugees;
extending relevant rights to refugees in accordance UNHCR’s mandate for refugees: Within the UN
with international human rights obligations; and system4 and governed by the General Assembly,
creating conditions for refugees to attain a durable UNHCR is the UN entity accountable for providing
solution. While responsibilities lie with the central protection and assistance to, and seeking solutions
government, regional and local authorities have an for, refugees. This accountability begins from the time
important role to play as well. International coopera- an individual needs international protection and lasts
tion in support of States receiving refugees is at the until they find a durable solution. UNHCR works with
heart of the 1951 Convention relating to the Status of an array of stakeholders to protect and assist
Refugees. This has been reaffirmed in regional refugees, whether they live in urban or rural settings
instruments and its importance is underscored in the with host communities, in sites and settlements with
GCR, which acknowledges the need for more IDPs and other populations affected by humanitarian
equitable burden- and responsibility-sharing for crises, or in non-emergency situations. In its supervi-
hosting and supporting the world’s refugees, consid- sory role, UNHCR is accountable for ensuring States’
ering existing contributions and the differing adherence to international instruments and standards
capacities and resources among States. for the protection of refugees and for strengthening
State protection capacities and asylum systems.5
The GCR calls for a multi-stakeholder and partnership
approach to ensure that refugee and host communi- UNHCR’s mandate includes leadership responsibili-
ties are not left behind,2 and for UNHCR to play a ties in a refugee response. Based on the RCM, this
supportive and catalytic role.3 This role includes leadership role is part of the responsibilities of the
increasing support to national systems and for the (Regional) Refugee Coordinator6 who speaks on
socioeconomic inclusion of refugees as well as behalf of the High Commissioner for Refugees on
engaging development actors in support of host matters pertaining to UNHCR’s refugee mandate and
governments from the onset of an emergency leads the response coordination in support of State
response. The specific refugee response leadership authorities of the refugee-hosting country or
and coordination arrangements are determined with countries. The Refugee Coordinator for a specific
national ownership as the point of departure and in refugee-hosting country is typically the UNHCR
consultation with UN entities and international, country representative, who closely engages with the
national and local organizations. UNHCR and Resident Coordinator (RC) or Resident Coordinator/
Humanitarian Coordinator (RC/HC), when present, on

2. The commitment to leaving no one behind is a cornerstone of the 2030 Agenda.

3. UNHCR, Global Compact on Refugees Booklet, December 2018, paragraph 33.
4. UN General Assembly, “Statute of the Office of the United Nations High Commissioner for Refugees”, 14 December 1950, A/
RES/428(V).
5. UNHCR, “UNHCR’s supervisory responsibility”, October 2002, ISSN 1020-7473.
6. For details on the distinct roles and responsibilities of a Regional Refugee Coordinator vs. a country-level Refugee
Coordinator, please refer to their respective terms of reference on the RCM guidance website.

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The Refugee Coordinator’s responsibilities

Lead and coordinate all stages Encourage co-coordination of Plan and implement Refugee
of a refugee response, from sectors by partners, particularly Response Plans (RRPs) with
preparedness to solutions, in local partners, that have the partners.
support of host governments necessary capacity, expertise,
and in accordance with nation- and experience.
ally owned plans, in cooperation
with inter-agency partners and Contribute to mobilizing funds
the RC/HC, where present. for the overall refugee
Ensure refugees (and other response.
affected communities) are
meaningfully participating at all
Lead advocacy on international stages of the response.
refugee protection matters. Regularly brief the Resident
Coordinator/Humanitarian
Coordinator, UN Country Team /
Ensure cross-cutting priorities Humanitarian Country Team,
Widen the support base for and principled response donors and other refugee
refugees and host countries in approaches: Accountability to response plan stakeholders on
line with the GCR and UN Affected People, protection progress and challenges.
reforms. from sexual exploitation and
abuse, localization, and more.

overall refugee issues. In situations which include approach and operational capacity are critical in
multiple refugee-hosting countries, the High Commis- supporting governments to design and rapidly roll
sioner for Refugees designates a Regional Refugee out the response,8 provided the security situation
Coordinator. This is generally the Director of the permits, humanitarian access is ensured and
UNHCR Regional Bureau overseeing the affected adequate resources are available. Through the RCM,
countries; however, the High Commissioner can also UNHCR is committed to establishing predictable,
make an ad hoc designation. inclusive, collaborative, efficient and effective coordi-
nation grounded in partnerships that are
UNHCR and response partners will support national
complementary in terms of expertise and capacity
arrangements for the coordination of comprehen-
and building on existing mechanisms, where appro-
sive refugee responses.7 At the outset of a refugee
priate. Crucially, this is informed through the
emergency, including when the Refugee Emergency
meaningful engagement of refugees and host
Response Scale-up Protocol is activated (see
communities, to ensure partners assist them to best
heading 3 below), UNHCR’s expertise, multisectoral
meet their needs.

7. UNHCR, Global Compact on Refugees Booklet, December 2018, para. 21 on national arrangements: “Such efforts could
support the development of a comprehensive plan under national leadership, in line with national policies and priorities,
with the assistance of UNHCR and other relevant stakeholders as appropriate, setting out policy priorities; institutional and
operational arrangements; requirements for support from the international community, including investment, financing,
material and technical assistance; and solutions, including resettlement and complementary pathways for admission to third
countries, as well as voluntary repatriation.”
8. In accordance with other General Assembly Resolutions and embedded in international treaty law, notably the 1951
Convention. See UNHCR, “Note on the Mandate of the High Commissioner for Refugees and his Office”, 2013.

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progress and report on implementation and

impact; raise the profile of the crisis through a
common communications strategy that helps
attract the necessary political, financial11 and
Organizations representing civil society, technical support, including through dissemina-
including international and local NGOs and tion events; and track contributions to the RRP.
those led by refugees themselves, are key ■ Promotion of protection mainstreaming across
partners in the refugee coordination model, the refugee response: Ensure protection
providing essential on-the-ground support, remains central to the response and support all
services, and advocacy. Their involvement sectors to mainstream it, including by being
ensures timely, effective responses, while accountable to affected people and by consid-
amplifying refugee voices and driving commu- ering age, gender and diversity in all response
nity-centred approaches to protection, activities.
assistance and social inclusion. ■ Information management: Establish or reinforce
data and information management capacity,
including through the contributions of other
UNHCR’s accountabilities for coordinating inter-
agencies, and anchor it in existing statistical and
agency refugee responses, in collaboration with and
census mechanisms where possible. Ensure the
in support of host governments, include9:
development and dissemination of high-quality
■ Preparedness: Where there is the high risk of a information products that use reliable data on
refugee emergency, lead and coordinate populations, needs and the response.
necessary joint preparedness measures, ■ Advocacy and information sharing: Regularly
scenario-based inter-agency contingency engage, update and coordinate with the RC/HC
planning and other anticipatory actions.10 and UNCT/HCT, where present, and ensure
■ Needs assessments: Coordinate joint participa- regular advocacy and information sharing with
tory needs assessments and gap analyses across donors and government counterparts as well as
and within sectors, accounting for the views of refugees, affected host communities and the
people of different age, gender and diverse public at large – particularly regarding main-
characteristics. These assessments should inform taining the protection space.
response strategies and priorities; targeting and
prioritizing of assistance; advocacy; and fund- Core principles in RCM coordination
raising for the refugee response.
■ Coordination: Establish and co-lead coordination The RCM is underpinned by the following core
mechanisms with the government that are principles:
adapted to the context and required for the
delivery of a response, in line with RCM struc- Centrality of protection
tures. Protection must be central to the RCM
■ Response planning, monitoring and resource throughout all phases of the refugee
mobilization: Coordinate the development of a response. The centrality of protection is
comprehensive inter-agency Refugee Response articulated in the RCM through a compre-
Plan (RRP) that is centred on a Protection and hensive Protection and Solutions Strategy that
Solutions Strategy and objectives; monitor underpins the Refugee Response Plan and its
objectives.

9. Where there are critical gaps in the refugee response, UNHCR will to the best of its abilities call on the government and
engage relevant humanitarian partners, donors, and other stakeholders to mobilize the necessary resources and continue
advocacy efforts to address these.
10. UNHCR, “Policy on Emergency Preparedness and Response”, 2023.
11. For new or rapidly deteriorating refugee situations, UN agencies may call upon the top UN official in the country to facilitate
the release of allocations from pooled funds.

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Protection mainstreaming such as children or people with disabilities, but is

Protection principles must be incorpo- nonetheless critical especially when the group
rated in all aspects of the refugee represents a significant proportion of the population.
response and across all sectors of See additional tools and resources on community-
intervention. Mainstreaming protection based approaches on the RCM guidance website .
translates into reducing barriers and promoting
Gender equality and women’s empowerment
meaningful access, also by considering the intersec-
The RCM promotes the integration of
tion of age, gender, and diversity in the design of
gender equality measures across all
assistance activities and services. It means to
sectors of the response, and the
mitigate protection risks in the planning and delivery
consistent use of sex-, age- and disability-
of assistance and services, to ensure safety and
disaggregated data in analysis and programming.
dignity of refugees and hosting communities of all
The equal participation in the response of refugee
ages, gender and diverse characteristics. It also
women and girls, as well as women-led organiza-
means ensuring that the core principle of “do no
tions, including those led by refugee women, implies
harm” informs all interventions in the refugee
their inclusion in decision-making structures and is
response and that the protective impact of aid
critical to building their capacity and resilience. See
programming is maximized. Protection main-
additional tools and resources on gender on the
streaming remains a shared ethical responsibility of
RCM guidance website .
all actors in the refugee response, in all sectors of
intervention. In its role in the overall refugee Partnership
response, particularly through the Protection Working In accordance with UNHCR’s commitment
Group, UNHCR can provide advice, guidance and to the Principles of Partnership endorsed
support. See additional tools and resources on by the Global Humanitarian Platform in
protection mainstreaming on the RCM guidance 2007, the organizations participating in
website . the RCM should follow the principles of equality,
transparency, result-oriented approach, responsibility,
Accountability to Affected People through commu-
and complementarity.
nity-based approaches and two-way communication
The RCM promotes participatory and Localization
community-based approaches to ensure A key feature of the RCM is to strengthen
that the response fully considers refugee local institutional and response capacities
and host communities’ expressed needs and the meaningful, equitable and
and priorities, their agency and their capacity in line inclusive participation, representation and
with accountability to affected people principles. leadership of local actors in refugee coordination
Considering the intersection of age, gender, and structures. National and local stakeholders,12
diversity of affected people is critical. Meaningful including organizations led by forcibly displaced
participation and local leadership build a path to people,13 are often the first responders in humani-
greater equity, effectiveness, and more sustainable tarian emergencies and can provide protection,
and durable responses. In addition, the response assistance and services including in areas where
should foresee systems to ensure two-way communi- UNHCR and other partners have limited or no access.
cation and modalities to gather feedback from They are adept at working through collaborative
individuals and communities. This can take multiple humanitarian-development-peace (HDP) approaches
forms, e.g. group discussions, help desks, contact and are key to promoting social support when
centres and digital tools, and it is key to ensuring that international actors withdraw. RCM sector coordina-
refugees and host communities’ voices inform tors promote avenues for national and local
decision-making related to the humanitarian stakeholders to access funding opportunities and for
response. Often consultation requires adaptation or capacity sharing. See additional tools and resources
technical expertise when targeting specific groups, on localization on the RCM guidance website .

12. Including community-based organizations, civil society organizations, local authorities, municipalities, regional governments,
local businesses, faith actors, and academic and philanthropic institutions.
13. UNHCR defines a refugee-led organization as an organization or group in which forcibly displaced people play a primary
leadership role and whose stated objectives and activities are focused on responding to the needs of refugees and/or related
communities.

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Climate action vulnerability, needs and protection concerns and to

Many refugees and host communities live design prevention and preparedness measures as
in situations that are exposed to well as response accordingly.
hazardous weather events and harsh
Such disaster risk reduction measures may include
environmental conditions, exacerbated by
strengthening community-based access to early
changes in climate. When they lack the resources or
warning systems and refugee and host communities’
are excluded from measures to adapt, withstand, and
capacities and resilience. They also imply managing
recover from adverse climate impacts, refugees face
natural resources and reducing environmental
increased vulnerability, needs and protection
pollution and impacts of humanitarian programmes,
concerns.
including carbon emissions.
Response coordination should therefore incorporate
RCM partners should advise and support govern-
prevention and preparedness measures to reduce
ments to ensure the inclusion of refugees and host
and manage climate and environmental risks and the
areas in climate adaptations plans, early warning
adverse effects of climate-related hazards. Consid-
systems, and early action protocols. Find more
ering the intersection of age, gender, and diversity of
practical information in the climate action section of
affected people is critical to assess the increased
the toolbox and the Climate and Environmental
Charter for Humanitarian Organizations.14

14. Includes references and guidance on how to incorporate climate action considerations in emergency responses.

Ethiopia: Partner staff install

solar streetlights donated by
UNHCR © UNHCR/Diana Diaz

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Whole-of-society approach having been used effectively to achieve outcomes

In line with the GCR, the RCM leverages a in education, child protection, and psychological
whole-of-society approach, including but and social well-being. Sport actors can also be
not limited to: partners in advocacy, communications and
fundraising, and they can be found in every
country;
■ promoting child and youth engagement, ■ engaging with the private sector17 to bring a
fostering the agency of children and young variety of resources and expertise to the table,
people, including by engaging with them to including funding, in-kind support, technology and
design and implement their own initiatives and human capital. It can provide critical funding,
those led by response partners. Working with and through Refugee Response Plan (RRP) partners
for children and young people as agents of for example, to support refugee response efforts,
change and mainstreaming their meaningful from emergency relief to longer-term programmes
engagement across the refugee response should that improve the livelihoods of refugees and
be a commitment of all actors, in line with the GCR develop markets and infrastructure in displace-
and other relevant guidelines; ment-affected areas. The private sector can
■ working with faith-based organizations15 to access cutting-edge technologies and expertise
promote peaceful coexistence between refugees that can be applied to refugee response efforts.
and host communities, given their role in Technology companies can, for example, develop
addressing root causes of forced displacement, applications or platforms to connect refugees with
by supporting conflict prevention, reconciliation, critical resources, while logistics companies could
peacebuilding and social cohesion. Faith-based help streamline aid delivery. Refugees may find
organizations are often first-line responders and private sector employment online, in the host
on site before, during and after an emergency, country or in third countries, or become refugee
serving the most vulnerable in remote and entrepreneurs. Private sector engagement can
hard-to-reach areas. What distinguishes them also support refugee entrepreneurs, help
from other actors is their unique role in being strengthen the capacity of local organizations and
rooted in and linked to faith communities and communities to respond to the needs of refugees
networks, locally and globally. With large and through training, mentorship and other forms of
dedicated constituencies, they have the capacity support. The private sector has the influence and
to amplify key protection messages and to reach to advocate policies that support refugees,
promote the acceptance of refugees; raise awareness about the challenges that they
■ encouraging engagement of sport-related actors face and promote solutions to address these
and approaches,16 which can serve to improve challenges.
meaningful participation, social cohesion, protec-
See additional tools and resources on the whole-of-
tion and development outcomes among displaced
society approach on the RCM guidance website .
communities, with sport- and play-based activities

15. Faith-based organization (FBO) is a term used to describe a broad range of organizations influenced by faith, including
religious and religion-based organizations/groups/networks; communities belonging to a place of religious worship;
specialized religious institutions and religious social service agencies; and registered or unregistered non-profit institutions
that have a religious character or mission.
16. UNHCR, Global Compact on Refugees Booklet, December 2018, para. 4; “the important role that sports […] can play in social
development, inclusion, cohesion, and well-being, particularly for refugee children (both boys and girls), adolescents and
youth, as well as older persons and persons with disabilities”.
17. This may include companies, chambers of commerce, private employment service providers, business incubators and others.

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ACTIVATION OF A REFUGEE EMERGENCY RESPONSE SCALE-UP

PROTOCOL
This updated RCM guidance introduces a Refugee Chair, and other relevant UN entities and stake-
Emergency Response Scale-up Protocol18 (hereafter, holders of the activation. Where multiple countries
the “Refugee Protocol”), which the High Commis- are affected, a Regional Refugee Coordinator will be
sioner for Refugees can activate to scale up an designated with regional oversight.
inter-agency response in crises that:
Upon activation of the Refugee Protocol, the
■ are characterized by significant refugee flows to (Regional) Refugee Coordinator consults with
one or more hosting countries; or relevant national authorities at the highest level, the
■ cause loss of life and/or other serious harm to, or RC/HC and with the members of the UNCT/HCT on
significantly affect the rights or well-being of, effective ways to bolster operational capacity and
refugees or refugee returnees, unless immediate build on existing coordination mechanisms, in line
action is taken; and with the RCM. To lead the collective refugee
■ where the existing capacity to lead, coordinate response in support of national authorities, the
and deliver with relevant authorities, humanitarian (Regional) Refugee Coordinator establishes the
and development actors, and civil society does coordination structure, including sector coordination
not match the scale, complexity and urgency of a arrangements; mobilizes partners with appropriate
situation without contributing additional financial, expertise, operational capacity and geographical
human and material support. presence; oversees the development of an
emergency inter-agency Refugee Response Plan
Activation of the Refugee Protocol requires strength-
(RRP); and ensures meaningful participation of
ening of the existing UNHCR-led coordination
refugees and affected host communities in all stages
structures or establishing RCM mechanisms and tools
of the response. Further responsibilities of the
where there are none, to ensure effective and
(Regional) Refugee Coordinator with regards to
partner-inclusive action in support of national authori-
response principles, cross-cutting priorities, and
ties and current capacities. The Refugee Protocol
upholding collective engagement are spelled out in
calls for all relevant stakeholders to collectively
the Refugee Protocol.
respond, in line with the RCM and the GCR’s whole-
of-society approach. It is a time-bound measure that The expiration of the Refugee Protocol does not
automatically expires after six months. In exceptional imply that the crisis it relates to has come to an end.
situations, an additional three-month extension can It could indicate that an adequate coordination
be considered when the gravity of the situation structure has been set up and that the inter-agency
justifies the mobilization of system-wide capacities response has been scaled up and stabilized. The
and resources beyond standard levels to respond to RCM and the (Regional) Refugee Response Plan
refugee and host community needs. (RRP) can be prolonged under the leadership of the
(Regional) Refugee Coordinator, beyond the expira-
Upon the decision to activate the Refugee Protocol,
tion of the Refugee Protocol.
the High Commissioner for Refugees designates a
Refugee Coordinator and notifies the UN Emergency The Refugee Protocol can be found on
Relief Coordinator (ERC), IASC Principals, the UNSDG RCM guidance website and in Annex I below.

18. In November 2018, the Inter-Agency Standing Committee (IASC) Principals endorsed Protocols on the Humanitarian System-
Wide Scale-Up Activation. The IASC Protocols underscore that agencies with a specific mandate are accountable for ensuring
a robust, inclusive and effective response, and acknowledge UNHCR’s mandated role to prepare, lead and coordinate
refugee and returning refugee responses.

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RCM COORDINATION STRUCTURE

The RCM coordination structure is flexible by design. The RCM structure can include regional, national and
It is intended to be adapted to the functional require- sub-national components, depending on context and
ments and existing capacity of each context. The needs of the response. Where a refugee emergency
sample RCM structure below is a maximum design, spans multiple countries, a regional-level forum may
with most contexts requiring far fewer working be appropriate to ensure overall coherence and
groups. Decisions to create sector working groups strategic coordination. Country-level structures are
should be taken by the Refugee Coordinator in put in place to work with government or line minis-
consultation with the Refugee Coordination Forum. tries to set and implement the overall country
The Refugee Coordinator should approach the response strategy through key sectors.
government and other organizations to coordinate or
co-coordinate the relevant sector working groups,
taking capacity and impact into consideration.

REFUGEE COORDINATION MODEL SAMPLE STRUCTURE*

Host Government

Refugee Coordination Forum (RCF)

Cross-Cutting Working Groups
Accountability to Affected Protection from Sexual Exploitation
People (AAP) and Abuse (PSEA) Network
Cash
Information Management Inter-Sector Working Group

Protection Education Public Settle- Liveli- Water, Food Basic Telecom- Supply Inclusion/
Health & ments & hoods & Sanita- Security Needs munica- (logistics & Solutions
Nutrition Shelter/ Economic tion and tion procure-
Housing Inclusion Hygiene ment)

Child Gender- Mental Non-Food

Protection Based Health Item (NFI)
Violence and Psy-
(GBV) chosocial
Support
(MHPSS)

*Based on context, this structure can be expanded or streamlined to effectively address the needs of refugees.

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In some situations, operations-oriented sub-national Membership is inclusive of government representa-

sector groups may be set up to implement the tives, specialized UN agencies, international NGOs,
national working group strategies and to coordinate local NGOs and civil society organizations, including
service provision close to the point of delivery. In refugee-led organizations and other relevant actors
principle, the sub-national working groups should be as defined in the Global Compact on Refugees (GCR).
co-led by local authorities, engaging actors present Ideally, national and international development and
in the area, and report to the national sector working peace actors are involved in the RCM structure from
groups. Alternatively, a geographically limited, the start of a response, as per the GCR and humani-
multi-sectoral coordination group may be created tarian-development-peace collaboration efforts.
that reports to the national Inter-Sector Working
Sector working groups provide a forum for technical
Group and looks to the national sector and technical
experts on field-level implementation and where
working groups for guidance.
challenges and opportunities can be raised and
RCM working groups commit to including refugees, addressed efficiently. While donors are not regular
host communities and other relevant populations in members of the sectoral working groups, they can be
the overall planning, coordination and implementa- invited to dedicated sector working group meetings.
tion of the response. Donors are also invited on an ad hoc basis to regular
donor briefings organized by the Refugee Coordi-
Scope of the structure: The number of sector
nator or other entities as part of the coordination
working groups created is determined by the context,
structure and have access to working groups’
refugee and host community needs, and operational
meeting minutes and other information products. The
priorities. The number created should be the
Refugee Coordinator and the RCM structure work
minimum needed to ensure effective coordination,
collaboratively with donors to find mechanisms to
enhance complementarity and avoid duplication with
satisfy their information needs.
existing coordination structures. The creation of
working groups is needs-driven, response-oriented, Sector working group core functions: Sector
firmly embedded in the Refugee Response Plan and working groups provide coordination and technical
endorsed by the Refugee Coordination Forum. guidance for operational response based on sector
Sector working groups that can be established under analysis, and they facilitate decision-making,
RCM, based on need and capacity, are: protection; advocacy, monitoring and evaluation, and information
public health and nutrition; education; settlement and sharing. They identify gaps and opportunities,
shelter/housing; livelihoods and economic inclusion increase operational efficiency, and build capacity,
(LEI); water, sanitation and hygiene (WASH); food among other activities, harnessing the comparative
security; basic needs; supply; and telecommunica- advantage of each sector member and strengthening
tions. Carefully evaluate if there is coherence links with development actors. From the beginning of
between the identified needs, response plan, coordi- the response, refugees’ socioeconomic inclusion and
nation structure, and monitoring framework. the strengthening of national systems are key
considerations for all sectors. Sector functions are
Working group membership: Sector working group
further elaborated on in each sector’s terms of
membership is determined by operational presence
reference (ToRs) included in the tools and resources
(or intended presence) on the ground, complementa-
section of the RCM guidance website .
rity of roles, comparative advantage and expertise.
Members should have the technical capacity and Working group facilitation: Where feasible, the
willingness to contribute to the refugee response and government leads the coordination of all sector
activities, mainstream cross-cutting issues and working groups through the relevant line ministry.
commit to work cooperatively with other sectors to The presence of a co-coordinating organization is
ensure an optimal and strategic use of available envisioned for all sectors. UNHCR co-coordinates the
resources and share information on organizational Protection Working Group, including any sub-sector
resources. working groups in child protection or gender-based
violence (GBV). The co-coordination of other sector
This does not mean that participation is exclusive to
working groups is based on partner presence and
large organizations with strong technical expertise.
expertise on the ground, willingness to engage, and
RCM sector working groups are inclusive and provide
a forum where member organizations can benefit
from capacity sharing, strengthening, and building.

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global agreements. The government may prefer to Regional Refugee Coordination Forum
co-coordinate the sector working groups, leaving the (Regional RCF)
lead coordination role to another organization.
A regional-level coordination structure, the Regional
If coordination by the designated government Refugee Coordination Forum (Regional RCF), is
authorities is not possible, the following alternative envisaged if a refugee crisis encompasses several
options can be considered, in order of priority, and countries and requires a broader coordinated
based on expertise and capacity: a national NGO, approach to protection, assistance and solutions.
international NGO, or UN entity. Where possible, a Serving as a strategic coordination and oversight
coordination/co-coordination team is preferred with forum, including for the development and review of
the paired organizations selected according to the regional RRPs, the Regional RCF provides direction,
criteria above and with a view towards localization, objectives and priorities for the refugee response;
sustainability and optimizing capacity sharing, raises and advises on cross-country issues; and
strengthening, or building. serves as an information-sharing space.
The national government, even if not able to take on Regional RCF responsibilities include ensuring
coordination, must uphold its responsibilities towards coherence and consistency of regional communica-
refugees according to international law. tions, reporting, advocacy and information
Sector coordinator obligations: Sector working management. Under the leadership of the Regional
group coordinators interact with each other through Refugee Coordinator, a Regional RCF is chaired by
the Inter-Sector Working Group (see paragraph c UNHCR and invites the participation of regional
below) and cross-cutting technical working groups or representatives of other UN agencies, including the
task forces and are accountable to the Refugee regional DCO, the Red Cross/Red Crescent
Coordinator (UNHCR Representative) and the Movement, and relevant regional non-governmental
Refugee Coordination Forum (RCF). They mainstream organizations (NGOs) and other civil society
protection, environmental considerations and networks, associations, etc. including those led by
address cross-cutting issues for collective benefit. refugees, that are involved in the refugee response
in the concerned countries. As a strategic platform
Sector structure review: Within 12 months of acti- that takes a collaborative humanitarian-development-
vating the Refugee Emergency Response Scale-up peace approach, it is open to donors, and
Protocol or setting up a refugee emergency response development and peace actors.
though the RCM, the Refugee Coordination Forum
reassesses the overall coordination structure to Other regional sector or inter-sector working groups,
ensure it remains fit for purpose i.e. coherent with the or cross-cutting working groups or task forces, can
response being delivered and the remaining, or also be considered by the Regional RCF on an excep-
changed, needs. This may result in merging some tional basis, depending on the specifics of the crisis
working groups of interlinked sectors to improve and response.
overall effectiveness and speed of the response by See sample terms of reference (ToRs) for the
“lightening” the structure or proposing options to Regional Refugee Coordination Forum on the
responsibly transition coordination functions to other RCM guidance website .
actors or structures. This assessment should include
reference to progress against the objectives of the
Refugee Coordination Forum (RCF)
GCR, as relevant, and lessons learned and sharing of
good practice among sectors. In protracted situa- A country-level RCF is established as a high-level,
tions, the coordination structure is reassessed at national strategic coordination mechanism that
regular intervals to ensure it is appropriate to the provides strategic direction for the refugee response,
operational context and response and to avoid the including objectives, priorities and oversight for the
proliferation of parallel systems. refugee response, in line with the Global Compact on
Refugees. It advises on engagement and advocacy
with relevant donors and development partners, and
promotes response planning and resource mobiliza-
tion efforts, including by engaging partners in the
RRP development and review process and by
providing guidance to the Inter-Sector Working

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Group and cross-cutting technical working groups Technical working groups and task forces
and task forces. The RCF is co-coordinated by the for cross-cutting priorities
UNHCR Refugee Coordinator and the government
and foresees the participation of other UN agencies Technical (non-sector) working groups perform a
and representatives of the Red Cross/Red Crescent service, such as providing technical advice and
Movement, as well as relevant international and guidance, for the benefit of all sector working groups.
national NGOs and other civil society actors, Due to their intersectoral relevance, technical
including those led by refugees or stateless people, working groups sit under the ISWG.
that are involved in the response. The RCF takes a A task force is a time-bound, task-oriented group that
collaborative humanitarian-development-peace is created by a higher-level group to which it reports,
approach, open to RC/RCOs, donors, development such as a sector working group, the ISWG or RCF.
and peacebuilding actors to align actions, when Task force membership is open to those from the
feasible. larger group with knowledge, experience or expertise
See sample ToRs for the Refugee Coordination relevant to the task force’s work, and upon invitation
Forum on the RCM guidance website . to others based on their ability to contribute. A task
force’s workplan is endorsed and overseen by the
higher-level group; final products are delivered to the
Inter-Sector Working Group (ISWG)
higher-level group for endorsement or agreement by
The ISWG, coordinated by UNHCR with a govern- the group as a whole. Once tasks are completed, the
ment counterpart, ensures overall coherence of the task force dissolves.
refugee response, by creating a venue for intersec-
toral coordination and enhancing intersectoral
analysis and initiatives. Guided by the RCF, it consti- Accountability to Affected People (AAP)
tutes the platform to coordinate the delivery of Working Group
assistance, encourage synergies between sectors, An AAP working group is often created
and ensures that roles and responsibilities are clearly under the ISWG to promote meaningful
defined. It convenes coordinators of all sectors and engagement and two-way communication
task forces and designated representatives from with refugees and host communities with
international and national NGO networks. an age, gender and diversity inclusion component. It
ensures mechanisms to regularly consult with and
More concretely, the ISWG will: obtain feedback from refugees to include their inputs
■ ensure protection mainstreaming by all sectors; in the response strategy. The government, where
■ ensure that cross-cutting priorities are considered possible, or a local or national partner, will co-coordi-
by all sectors and that relevant task forces or nate with UNHCR on all AAP efforts to inform the
working groups are established (see below response.
section); Depending on the context, AAP can be coordinated
■ address potential risks of sectoral duplications as part of the strategic Refugee Coordination Forum,
and gaps; or the ISWG or through a dedicated separate working
■ discuss intersectoral operational challenges and group.
ways to solve them;
■ develop and implement common products, such See sample ToRs on Accountability to Affected
as an RRP; People Task Force and other tools and resources on
■ identify advocacy areas, resource gaps and key the RCM guidance website .
messages and escalate critical issues to the RCF;
and
■ work towards durable solutions and refugee
inclusion in national systems and services, in line
with the GCR.

See sample ToRs for the Inter-Sector Working Group

on the RCM guidance website .

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Protection from Sexual Exploitation and Abuse medical care, and psychosocial support or legal
(PSEA) Network services as part of (or in addition to) GBV and child
Humanitarian workers must uphold their protection responses.
responsibility to do no harm and are PSEA is a cross-cutting issue requiring a range of
required to protect people affected by technical expertise. Working to prevent and respond
crises. Measures must be in place across to SEA is a collective responsibility for all actors in all
all sectors to eradicate sexual exploitation and abuse. sectors. For this reason, the PSEA Network is an
In a refugee setting and within the RCM, UNHCR is independent, stand-alone structure and not a
accountable for establishing and co-coordinating a sub-group of Protection, GBV, or AAP.
PSEA Network19 (where one does not already exist)
that will report directly to the Refugee Coordinator See sample ToRs for a PSEA Network and other tools
and Refugee Coordination Forum (RCF) and closely and resources on the RCM guidance website .
coordinate with the ISWG to ensure that PSEA is
integrated across the refugee response, taking into
Information Management Working Group
account existing coordination structures for PSEA in
the country as applicable (please refer to Working Each sector response relies on shared
Effectively with Existing Coordination Systems data, assessments and information for
section). The PSEA Network is the primary body for decision-making, implementing a
technical-level coordination and oversight of PSEA response and measuring its impact.
activities. UNHCR is responsible for ensuring and reinforcing
coordinated information management across the
refugee response,20 with the contributory support of
Over the past years, protection from sexual other inter-agency partners. Depending on the
exploitation and abuse (PSEA) has been situation, needs and capacities of the response, a
increasingly recognized as a priority cross- stand-alone assessment working group may also be
cutting issue within the humanitarian, established.
development and peacekeeping sectors and
The Information Management Working Group (IMWG)
the need for strong inter-agency coordination
reports to the ISWG and will manage information to
and clear leadership and accountability,
support decision-making and better identification of
highlighted through the UN system and IASC.
gaps and opportunities; facilitate the information flow
These developments related to PSEA in the
among and between sectors and other fora to
inter-agency landscape are important to
minimize duplication using tracking and quantifying
consider, ensuring accountability and coordi-
tools; support sectors in conducting coordinated or
nated approaches to PSEA in refugee
joint assessments, monitoring and reporting on
responses.
activities in line with the RRP; and enhance communi-
cation across the coordination system according to
The PSEA Network will work closely with all sectors information-sharing protocols.
to mainstream SEA prevention, risk mitigation and
See sample Information Management Working Group
response across sectors, including mapping potential
ToRs and other tools and resources on the
SEA risk areas by sector and taking actions to
RCM guidance website .
mitigate those risks, integrating PSEA messages into
community outreach and capacity-building sessions,
and ensuring multisectoral services and referral Cash Working Group
pathways are in place for survivors to access the Cash is a modality, not a sector. Cash
support that they may require. This includes safety assistance is used across sectors, and
and security measures, basic material assistance, technical advice and guidance need to be
coordinated at the intersectoral level

19. The name may differ in some countries.

20. UNHCR is responsible for ensuring identity management and population data for refugee situations, see UNHCR, “Serving
and Protecting Together: IOM/UNHCR Framework of Engagement”, 30 June 2022.

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because of the implications for all sectors. Specific The Protection Working Group is the overarching
programmatic objectives are set by the sectors. coordination structure for protection, including all
Following the Grand Bargain decision in March 2022 sub-sectors of protection. This is important to ensure
on a cash coordination model, UNHCR became coherence in strategic planning, response, and
officially accountable for cash coordination in refugee advocacy, including through the RRP.
settings. Therefore, UNHCR normally co-chairs the
In coordination with the ISWG, time-bound task
Cash Working Group (CWG) with governments and
forces may be established around specific protection
local actors, where appropriate. The CWG reports to
concerns and topical areas, such as disability
the ISWG and often works closely with the Basic
inclusion and age, sexual orientation, gender identity,
Needs Working Group, when it exists and cash is
gender expression and sex characteristics. The
used as a modality.The CWG is expected to advise on
Protection Working Group engages all actors in
cash related issues, including the use of financial
producing a Protection and Solutions Strategy,
services, market assessment and information
including refugees and host communities, and
management, such as where to report multipurpose
supports other sectors’ capacity to mainstream
cash in the response plan’s monitoring framework
protection and inclusion considerations. This helps
and alignment of cash indicators across sectors.
ensure that the overall response is designed with a
See sample ToRs for the Cash Working Group and protection-sensitive approach, including within the
the cash coordination package on the ISWG.
RCM guidance website .
See sample Protection Working Group and Sub-
Sector Working Group ToRs, and other resources on
RCM Sector Working Groups the RCM guidance website .
The refugee response is based on a sectoral
approach. Sector working groups are responsible for
Education
sector-specific strategies that are in line with the
overall strategic directions from the RCF and comple- The education sector focuses on
mentary to other pre-existing workplans. promoting access to different levels of
Environmental considerations are mainstreamed in all education for refugee children and young
sectors’ plans. They also ensure that refugees and people – from pre-school or early
host communities participate at all stages of the childhood education up to tertiary – through the
operations cycle. national education system. The Education Working
Group (EWG) should be co-coordinated by relevant
ministries and technical experts from an RCM partner
Protection with the appropriate expertise and operational
The protection sector ensure that people capacity. Rotating chairs and the role of local actors
from both the refugee and the host can be considered to allow inclusive coordination.
communities, including stateless persons, See sample Education Working Group ToRs and
live in safety and dignity and can enjoy resources on the RCM guidance website .
their basic rights. UNHCR co-coordinates the Protec-
tion Working Group with the government, which
could be the refugee-mandated authority, or line Public health and nutrition
ministry, depending on the context. The Protection The public health and nutrition sector
Working Group may include technical sub-sector focuses on promoting refugees’ access to
working groups to coordinate child protection and quality comprehensive health and
gender-based violence prevention, mitigation and nutrition services, their inclusion in
response activities, particularly in complex refugee national health programmes, and host communities’
emergencies or at the onset of one. In those cases, equitable access to quality health services alongside
at least in the initial phases of an emergency, sub- refugees. A Public Health and Nutrition Working
sector working groups should also be co-coordinated Group should be co-coordinated by relevant minis-
by UNHCR with the authorities or with NGOs that tries and technical experts from an RCM partner with
have strong technical expertise. the appropriate expertise and operational capacity.
The Public Health and Nutrition Working Group

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includes nutrition, reproductive health, HIV and streamed in all sectors’ approaches energy
mental health and psychosocial support (MHPSS) as specifically is included under the Settlement and
fixed standing items in coordination meetings. Shelter/Housing Working Group.21
Sectors involved in MHPSS should feature MHPSS as
See sample Settlement and Shelter/Housing Working
a standing item on their agendas. Depending on
Group ToRs and resources available on the
context, a dedicated MHPSS technical working group
RCM guidance website .
or task force may be established, jointly coordinated
by a health and a protection organization and/or
relevant line ministries, to support other sector Livelihoods and economic inclusion (LEI)
working groups as needed.
The livelihoods and economic inclusion
See sample Public Health & Nutrition Working Group sector must be linked to relevant minis-
ToRs and resources available on the tries, civil society, private sector and
RCM guidance website . development actors. LEI considerations
must be prioritized from the start of the emergency to
ensure that processes established are not distorting
Settlement and shelter/housing local markets or creating unnecessary dependency
The settlement and shelter/housing and are in line with the humanitarian-development-
sector promotes access to adequate peace collaborative approach. The LEI Working
housing options for refugees, during the Group advocates for the inclusion of refugees in
displacement emergency phase and economic growth and poverty reduction efforts, and
beyond. The sector will advocate for adequate living in national and local services. Helping to connect
conditions in safe settlements, discouraging the affected people to their hosts also supports their
establishment of camps to the extent possible. The engagement in economic opportunities.
Settlement and Shelter/Housing Working Group
To inform planning and programming, the LEI
should be co-coordinated by relevant ministries and
Working Group focuses on collecting socioeconomic
technical experts from an RCM partner with the
data, such as the socioeconomic profiling of
appropriate expertise and operational capacity.
refugees, skills mapping, market analysis and stake-
In urban situations, based on the context, a multisec- holder mapping. It emphasizes interventions aimed at
toral technical working group may be established stabilizing refugees’ livelihoods, identifying employ-
considering the needs, capacities and access to ment and self-employment opportunities, and
services and infrastructures. Rather than establishing promoting economic inclusion and social protection.
additional technical sector working groups and The LEI sector should be jointly coordinated by
depending on context, needs and resources, sectoral relevant ministries and technical experts from an
areas such as WASH may be included as a sub- RCM partner with the appropriate expertise and
sector working group in the settlement and shelter/ operational capacity.
housing sector, when relevant.
See sample LEI Working Group ToRs and resources
Should refugee camps and/or settlements be estab- available on the RCM guidance website .
lished, a dedicated Settlement and Shelter/Housing
Working Group should be set up.
Water, sanitation and hygiene (WASH)
The Settlement and Shelter/Housing Working Group The WASH sector promotes universal and
will only exceptionally cover the coordination of equitable access to WASH for refugees
activities related to household and domestic and host communities, ensuring safe
non-food items (NFIs) to meet refugees’ basic needs access to water of sufficient quantity and
where there is no Basic Needs Working Group. quality, quality sanitation and solid waste manage-
Although environmental considerations are main-

21. There is no Camp Coordination / Camp Management (CCCM) sector in the RCM. Instead, alternatives to camps are advocated
for so that refugees can enjoy freedom of movement, access to services and livelihoods, and broad inclusion. The RCM
avoids treating refugee “sites” as separate from the larger ecosystem of services and administration, emphasizing inclusion
from the start and empowerment of local authorities and national actors. Protection is mainstreamed throughout the response
and oversight is done through the Inter-Sector Working Group.

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ment. The WASH Working Group should be services that address their socioeconomic vulner-
coordinated by relevant ministries and experienced abilities and capacities. The Basic Needs Working
technical experts. In refugee camp and settlement Group facilitates the delivery of immediate life-saving
contexts, a separate WASH Working Group should be assistance for refugees through in-kind or cash
established for the site, working closely with the assistance that further refugees’ access to services
Settlement and Shelter/Housing Working Group. In while avoiding duplication in assistance. Depending
urban situations, considering the needs, capacities on the context, capacities and needs, the basic
and access to services, a WASH Working Group can needs sector may be set up to coordinate any
be included under the Settlement and Shelter/ combination of health, food security, WASH,
Housing Working Group, as applicable. education, non-food items (NFIs) or other sectoral
assistance, as relevant, as well as when multipurpose
See sample WASH Working Group ToRs and
cash is the delivery modality22. Multipurpose cash
resources available on the RCM guidance website .
assistance is particularly suited for meeting basic
needs and more cost-effective than in-kind assis-
Food security tance; refugees prefer it because it empowers them
to choose how they meet their own needs. The Basic
The food security sector works to ensure
Needs Working Group works closely with the Cash
refugees have access to adequate
Working Group, to ensure alignment with cash
nutrient-rich food and services to prevent
assistance standards and best practices. The Basic
and reduce malnutrition and undernutri-
Needs sector should be co-coordinated by relevant
tion, which are essential for protecting their survival,
ministries and technical experts from an RCM partner
safety, health and well-being. The Food Security
with the appropriate expertise and operational
Working Group also assesses food security needs,
capacity.
advocates in favour of adequate and nutritious food,
promotes livelihoods and agriculture, empowers See sample Basic Needs Working Group ToRs and
women, and improves access to financial services. In resources available on the RCM guidance website .
addition, the working group aims to create an
environment that supports refugees’ ability to provide
for themselves and become more self-reliant. Food Supply (logistics and procurement)
security is coordinated in support of national govern- The supply sector is responsible for
ments and through a working group that collaborates supply chain management, operational
with other UN agencies, NGOs, and partners. A joint support, and planning and reporting on
understanding of refugees’ food and basic needs is resource use. This includes procuring
essential to guide the response and the Food goods and services to support programmes and
Security Working Group should link up with the Cash, activities across all sectors and all phases of the
Livelihoods and Economic Inclusion, and Protection response, and providing logistical support to ware-
Working Groups. houses, stockpiles, fleets and assets.

See sample Food Security Working Group ToRs and The Supply Working Group, when established,
resources available on the RCM guidance website . should consist of two branches or teams: logistics,
sometimes called the UN Common Logistics Group,
and procurement, called the UN Common Procure-
Basic needs (context-specific, optional sector) ment Team. The procurement team is primarily
UNHCR defines the basic needs dedicated to UN agencies, with a view to standard-
approach as a way to enable refugees to izing sourcing options and vendor management.
meet their basic needs and achieve Meanwhile, the logistics team addresses challenges
longer-term wellbeing through means and associated with customs clearances and international

22. Operations should consider where to report multipurpose cash assistance in their inter-agency monitoring framework,
since the activity is multisectoral and cannot be reported under a single sector. The response plan, appeal, coordination
architecture, and monitoring framework must be coherent to allow for accurate analysis and accountability.

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shipments with the support of the IMPACCT23 Group is created to map all opportunities to build on
Working Group, and oversees the entire logistics existing capacities, programmes and plans. In
spectrum, including warehousing and transportation. coordination with existing sectors, the Inclusion/
Solutions Working Group should undertake feasibility
See sample Supply Working Group ToRs and
assessments to address needs though existing
resources on the RCM guidance website .
government systems, such as health, education,
social protection, WASH and shelter, and map
Telecommunications national sector plans and sub-national development
plans, which could be mobilized to address needs. It
The refugee emergency telecommunica-
should also promote economic inclusion by identi-
tions sector (RETS) provides vital
fying labour market needs and mapping the locations
communications to the humanitarian
with best job chances for refugees. The working
response community, supporting their
group will include the RCO, development actors and
life-saving work. Information and communications
government representatives, including municipalities
technology enables better and faster humanitarian
and mayors’ offices. Inclusion and solutions are
assistance and supports the safety and welfare of aid
critical approaches to support refugees in the longer
workers by providing internet connectivity, high
term to live more dignified lives, to ensure their
frequency radio and satellite communications. In
inclusion in the collective efforts to advance the
addition, RETS coordinates services and guidance
2030 Agenda and obtain more sustainable
with government, civil society and private sector
outcomes.
stakeholders.
See sample Inclusion/Solutions Working Group ToRs
RETS is coordinated by UNHCR and national actors
and resources on the RCM guidance website .
where possible. Following a needs assessment,
internet connectivity and security telecommunica-
tions services can be provided in support of sector Return and Reintegration Working Group24
activities and humanitarian actors supporting the
Refugee returnees are citizens of the
refugee crisis.
country to which they return. Which
See RETS Working Group ToRs and resources on the coordination mechanism is best to
RCM guidance website . respond to their situation depends on the
context and requires coordination with national and
Other working groups local authorities, a broad range of actors, including
development and peace actors, with the participation
The RCM can also include coordination groups for of returnees and host communities. A good practice
durable solutions and inclusion and/or returnee is to adopt an area-based or vulnerability-based,
reintegration. rather than status-based, approach, as refugees will
most likely return to the same locations to which IDPs
are returning and services or infrastructure is often
Inclusion/Solutions Working Group
lacking for everyone, including those not formerly
The strategic-level Refugee Coordination displaced. In those contexts where an RCM is in
Forum should take the lead in over- place, it is possible to establish a Return and Reinte-
arching analysis and strategy regarding gration Working Group that can help coordinate
refugee inclusion and solutions, including efforts to meet the needs of returnee refugees.
identifying barriers and overseeing any process to
overcome them. Sector working groups should See sample Return and Reintegration Working Group
likewise maintain inclusion as a goal in their respec- ToRs and guidance on the RCM guidance website .
tive sector strategies and response plans. However, See Annex II for more information on returnee
in some contexts, an Inclusion/Solutions Working coordination and response.

23. The IMPACCT (Importation and Customs Clearance Together) Working Group is a partner of the Global Logistics Cluster and
was founded at the Humanitarian Networks and Partnership in 2017 to assess and review importation and customs clearance
of humanitarian aid.
24. For more detail on refugee returnee coordination, see Annex II.

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REFUGEE OPERATIONS MANAGEMENT CYCLE

Inter-agency needs assessments implement robust processes and systems, tailored to

the specific needs of refugees and the response
UNHCR’s accountability for coordinating a multisec- context.
toral, rights- and needs-based refugee response
implies responsibility for needs assessment and For more information, tools and resources on infor-
analysis, response planning, and monitoring and mation management see on the
evaluation. This requires effective data and informa- RCM guidance website .
tion management that helps to make the right
information available to the right people at the right Refugee Response Plan (RRP)
time.
An RRP is an inter-agency planning, coordination and
Needs assessment for refugee emergencies fundraising tool that supports host governments in
(NARE): The NARE is designed to assist UNHCR and providing protection and assistance to refugees, the
inter-agency teams with the guidance and tools communities hosting them and other relevant
required to undertake an initial coordinated joint population groups in large and complex emergencies
multisectoral needs assessment in refugee emergen- through international solidarity. It is designed to assist
cies. It is easily customized and can also be used UNHCR and partners to operationalize the RCM and
when new groups of refugees move into an existing reflects UNHCR’s facilitation and convening role, as
operational area, or to strengthen response activities set out in its mandate and the GCR.
where adequate needs assessments have not been
made. RRPs build on approaches and capacities of host
governments, engaging a diverse range of actors25
The key objectives of an emergency needs assess- including refugees and host communities. Inter-
ment are to: agency strategic objectives, along with
comprehensive and sector-specific response strate-
☐ ensure humanitarian aid corresponds to needs;
gies and activities detailed in an RRP, aim to deliver
☐ ensure humanitarian aid promotes safe local
protection and multisectoral assistance. These plans
coping mechanisms;
also emphasize enhancing refugees’ self-reliance
☐ identify and understand the unique and respec-
and resilience and prioritize planning for and facili-
tive needs of different populations, according to
tating solutions from the onset of an emergency. This
age, gender and diversity considerations; and
requires early collaboration with development
☐ make sure that decisions on humanitarian aid are
partners, through engagement with RCs and the UN
based on facts.
development system, to strengthen collective
For further information, please see the NARE advocacy and support for the inclusion of refugees in
Guidance, alongside additional assessment national development plans, systems and labor
resources available on the UNHCR Assessment and markets. RRPs may contribute to strengthening and
Monitoring Resource Centre. supporting national structures, depending on the
specific context of the displacement situation and
Data and information management (IM) where conditions allow.

Data and IM are cross-cutting functions that are An RRP is grounded in the findings and evidence
essential for the success of all aspects of an inter- from needs assessments and protection monitoring
agency refugee response. They are critical to initiatives. The process to create the RRP is managed
developing, supporting and monitoring Refugee through the in-country inter-agency coordination
Response Plans (RRPs), and a prerequisite for structure. RRPs have been created to address
supporting government efforts. At sector and inter- different types of refugee crises, including new
sector level, specialists should develop and emergencies and protracted situations, and they can
also facilitate the transition from short-term plans to

25. Including UN agencies, international NGOs, local NGOs, refugee-led organizations, sports organizations, development
entities, and private sector actors, among others.

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medium- or long-term resilience planning. RRPs can Monitoring frameworks should be set up for each
be developed at the country level or take a regional RRP, as they enable understanding of progress
approach. towards planned results and allow for corrective
action to be taken, where necessary. RRP partners
Country RRPs reflect the needs of all refugee
can thus continuously monitor the situation and the
populations hosted in a country. In emergency
outputs of the response, reporting against indicators
situations, a country RRP can also be developed
with common monitoring tools. Tools for monitoring
targeting one refugee population or covering a
can be as simple as a 3Ws (who, what, where) in
specific geographic area, reflecting the context, the
Excel or more complex and built on the ActivityInfo
Protection and Solutions Strategy, and the inter-
platform.
agency response to the new emergency. These are
developed and coordinated under the leadership of To the extent possible, following the concept of
the host country, where possible, and the Refugee solutions from the start and the commitment under
Coordinator. the 2030 Agenda to ensure that refugees are not left
behind, an RRP should help lay the groundwork to
Regional RRPs are developed under the leadership
include a development lens through strong alignment
of a Regional Refugee Coordinator and consist of a
and complementarity with Cooperation Frameworks,
regional overview and country chapters summarizing
when they co-exist, and with national development
the protection and solutions strategies and inter-
plans.
agency responses related to a specific refugee
population at the country level. A set of standardized RRP guidance notes, templates
and tools are available on the RCM guidance website .
In addition, in response to the many challenges
inherent in identifying and protecting refugees within
broader population movements, an RRP can also be RRP fundraising
adapted and developed for mixed refugee and Beyond being a planning and coordination tool, the
migrant situations, such as a Refugee and Migrant RRP also serves as a fundraising appeal for both
Response Plan, in collaboration with IOM. UNHCR and operational partners and enhances the
visibility of refugee needs and of the inter-agency
response. While the RRP is not linked to a pooled
fund, and having activities in an RRP does not
guarantee receiving funding, donors favour funding
Assistance to host communities activities that are part of a single vetted26 inter-
agency strategic response plan coordinated with
Refugee Response Plans place a particular
host governments, complementing their action. The
focus on host communities. It is important that
RRP provides a comprehensive overview of the
assistance to these communities is included in
needs of refugees, host communities and other
the plans and fully aligned with national
relevant population groups. For new or rapidly
development plans designed by the host
deteriorating refugee situations, UN agencies may
governments. Assistance to host communities
call on the top UN official in the country to facilitate
should be reflected in the plan’s objectives
the release of allocations from pooled funds. The
and indicators. RRPs should also clearly
RRP also includes a transparent and inclusive moni-
demonstrate in the narrative the interaction
toring and accountability mechanism.
with programmes for host communities
included in national development plans,
development partner plans and the Coopera-
tion Framework.

26. To become an RRP partner and have a project budget included in the appeal, organizations must share their project
proposals for review with the designated reviewing body within the RCM (ex. ISWG, RCF or specially composed panel)
where the projects are evaluated for coherence with the needs, priorities, and activities as jointly determined in the RRP
and complementarity with other proposals. Guidance and a window for resubmission may be provided to help strengthen
proposed project design and relevance.

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Therefore, organizations with activities in an RRP and regional RRPs. Available data includes funding
(appealing organizations27) also need to fundraise received by partners involved in and appealing for
bilaterally. This is the same funding model used funds in refugee responses.
broadly within the humanitarian community, where
In contexts where the RFT is used, all partners,
agencies’ needs and budgets are outlined within
including UN agencies, NGOs and others appealing
inter-agency plans, as well as in more elaborate
for funds within a RRP must report the funds they
single agency plans that can provide more detail on
receive against their requirements. Reporting on
activities.
funding received is essential to portray an accurate
The (Regional) Refugee Coordinator, RCF and sector picture of the funding gaps for the host governments,
coordinators create opportunities to publicize the donors, and partners throughout the year.
RRP and the different partners’ resource require-
The RFT and additional guidance can be found here.
ments, contributions and impacts. They also seek to
engage with donors by keeping them informed about
operational and political developments related to the
RRP, such as achievements, constraints, funding
gaps, and ways to support advocacy efforts.
EVALUATION
In carrying out this responsibility to mobilize
resources, UNHCR remains guided by the principles Evaluations are critical to strengthening evidence-
of localization. Notably, as per the Grand Bargain, it based learning and accountability to refugees,
will work to increase the level of funding for local returnees and other populations assisted through the
partners as directly as possible. This will improve RCM. Evaluations of a refugee response may take
outcomes for refugees and reduce transaction costs. place at any stage – for UNHCR, such evaluations
Further guidance and information on resource are automatically triggered by an internal L3 declara-
mobilization strategies for the RRP can be found on tion.29 Joint inter-agency evaluations may be
the RCM guidance website . organized and led by UNHCR in coordination with
other humanitarian actors engaged in the refugee
response. They are typically framed by the RCM and
Refugee Funding Tracker RRP. In conducting evaluations, UNHCR and all other
The Refugee Funding Tracker (RFT) was developed humanitarian partners will be guided by UN evalua-
by UNHCR to track financial data related to refugee tion norms and standards, ethical principles, human
programmes.28 It covers inter-agency budgets and rights, gender equality and inclusion principles.
funding for refugee-related plans, such as country

27. Appealing partners are entities whose activities are submitted under the RRP for funding, and which will be monitored
through the Plan’s monitoring and reporting framework. An entity that is contracted by an appealing organization to
implement that organization’s activity should not submit a funding requirement to the RRP as this would lead to double
counting.
28. RFT is a reporting mechanism that is a separate requirement from reporting to the OCHA-led Financial Tracking System (FTS),
in agreement with OCHA.
29. UNHCR may declare one of three emergency levels, depending on the magnitude, complexity and consequences of the
humanitarian crisis compared to the existing capacity of the operation(s) and bureau(x) concerned. A comparative table of the
three emergency levels can be found here.

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WORKING EFFECTIVELY WITH EXISTING COORDINATION

SYSTEMS
The RCM may be implemented in countries that address the needs arising from the refugee
already have other humanitarian, development and emergency in a way that reflects UNHCR’s account-
peace or stabilization coordination structures, abilities and is in line with the RCM.
including a PSEA Network. In these instances, the
On PSEA, UNHCR maintains overall coordination and
RCM is intended to build on and complement these
leadership responsibilities for PSEA in the refugee
existing structures, maximizing efficiencies, reducing
response, while the configuration of PSEA coordina-
duplications, and ensuring refugee inclusion in
tion structures will need to be guided by the
ongoing initiatives and systems. However, UNHCR’s
operational context, what structures already exist,
accountability and responsibility for refugees must be
and what would be fit for purpose and optimize
maintained, in line with its mandate and Statute, as
results (e.g. separate PSEA network for refugee
reaffirmed in the GCR. UNHCR should work with
response or merged PSEA network covering both
national authorities at the highest level to link up with
refugee and IDP operations). Moreover, the UNHCR
existing coordination mechanisms and service
Representative, as Refugee Coordinator, actively
provision, to effectively bolster operational capacity
engages in coordinating PSEA efforts with the RC/
without creating parallel systems for the refugee
HC30, shares updates on developments on PSEA in
response.
the refugee response with the RC/HC and UNCT/
Furthermore, population movements are not neces- HCT and actively contributes to system-wide efforts
sarily homogeneous. Some may involve both maximizing resources, efficiency, and impact in
refugees and migrants; others may involve refugees addressing PSEA31.
and internally displaced persons (IDPs); and, in
certain situations, displacement may result from or Mixed refugee and IDP situations
overlap with climate-related and other natural hazard-
related emergencies. These situations present In situations where a complex humanitarian
complex challenges for affected States. emergency or natural disaster is taking place and a
Humanitarian Coordinator (HC) has been appointed,
When responding to refugee needs within these the HC leads overall humanitarian planning,
mixed movements, UNHCR will work with RC/HCs advocacy and resource mobilization. OCHA supports
and partners, including OCHA and IOM, to engage the HC in coordinating the humanitarian response
their mandates, roles and expertise as appropriate, inside the country through the Inter-Agency Standing
and coordinate an approach. This includes deter- Committee (IASC) cluster approach. Clusters focus on
mining whether current government-led or populations affected by a crisis, including IDPs. In
inter-agency coordination mechanisms, such as the situations where there is also a UNHCR-led refugee
Inter-Agency Standing Committee cluster approach response, the Joint UNHCR-OCHA Note on Mixed
or development mechanisms can be adapted to Situations applies (see text box on p. 30). Refugee-
only responses are not coordinated through the IASC
cluster approach.

30. Note the RC’s UN system-wide responsibilities for PSEA under the Management and Accountability Framework of the UN
Development and Resident Coordinator System.
31. In accordance with the IASC Vision and Strategy: Protection from sexual exploitation and abuse and sexual harassment
(PSEAH) 2022-2026 and the IASC’s Generic Terms of Reference for In-Country PSEA Coordinator, in country contexts
where refugee situations are the predominant humanitarian concern, the PSEA Coordinator should be situated within the
UNHCR office with a shared reporting line to the UNHCR Representative / Refugee Coordinator and the (D)SRSG/RC/HC as
appropriate (see the Joint UNHCR-OCHA Note on Mixed Situations: Coordination in Practice). For additional information on
the RCM and PSEA coordination in these settings, see UNHCR’s Emergency Handbook.

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The note outlines coordination when refugees and response. The Refugee Coordinator and the
IDPs are in the same or separate geographic Refugee Coordination Forum/Inter-Sector Working
locations. In mixed situations where IDPs and other Group will ensure effective coordination through
affected populations are geographically separate information exchange with inter-cluster coordina-
from refugees, response delivery and coordination tion forums and support for the implementation of
are likewise separate. IASC Clusters coordinate the the Humanitarian Programme Cycle.
operational response for IDPs and other affected ■ To streamline processes, when appropriate, a
groups, and UNHCR sector working groups coordi- single coordination platform (RCM or IASC cluster
nate the operational response for refugees. Yet IASC approach) can be used to implement the humani-
Clusters and UNHCR sector working groups still tarian response to ensure optimal efficiency and
share information at the national level. effectiveness.

In contexts where IDPs and other affected popula-

tions are geographically mixed with refugees, the
Joint Note allows that “either IASC Clusters or
UNHCR Sectors will be utilized” for response
delivery, “based on which best ensures optimal Joint UNHCR-OCHA Note on Mixed
efficiency and effectiveness”. The best option will be Situations: Coordination in Practice (2014)
identified through consultation and mutual Within the framework of the IASC Transforma-
agreement by the High Commissioner for Refugees tive Agenda, UNHCR and OCHA agreed how
and the Emergency Relief Coordinator. to simplify and streamline leadership and
In line with UNHCR’s mandate, the UNHCR country coordination arrangements in a complex
representative is accountable for coordinating the emergency or natural disaster where a Human-
refugee response, ensuring the international protec- itarian Coordinator has been appointed and a
tion and delivery of services to refugees. The direct UNHCR-led refugee operation is also
communication line from the UNHCR country repre- underway. The resulting document, the Joint
sentative to the government on refugee issues is UNHCR-OCHA Note on Mixed Situations:
maintained. Coordination in Practice, provides guidance on
how, in ‘mixed’ settings (where the populations
The Joint Note provides an overview of the division of humanitarian concern include refugees,
of responsibilities between the UNHCR country IDPs and other affected groups), the leader-
representative and the Humanitarian Coordinator in ship and coordination mechanisms should
these situations to ensure that coordination is function in practice. Using a simple table
streamlined, complementary and mutually rein- format, the document outlines the practical
forcing, and that avoid duplication at the delivery interaction of IASC Clusters and the RCM in
level. Key points include: two contexts: (1) where refugees are present in
the country in a separate geographic area from
■ UNHCR maintains responsibility for leading and
IDPs and other affected populations; and (2)
coordinating the provision of international protec-
where refugees are present in the same
tion, humanitarian assistance and durable
geographic area as IDPs and other affected
solutions for refugees, including leading the
populations. The note covers leadership,
refugee response and engaging in advocacy with
strategic planning, operational coordination,
the host government. UNHCR keeps the HCT and
delivery, resource mobilization and advocacy.
Humanitarian Coordinator informed on these
The points on operational coordination are
activities, but reports to the High Commissioner
reiterated here for convenience. For more
for Refugees and, ultimately, the UN General
information refer to the Joint Note available
Assembly.
here.
■ UNHCR leads the refugee-specific strategic
planning exercise and RRP (or refugee chapter in
the Humanitarian Response Plan) to ensure
coherence with the broader humanitarian

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Mixed refugee and migrant movements UN development coordination

Through the Serving and Protecting Together: IOM/ From the start of a crisis, in line with the GCR, the
UNHCR Framework of Engagement, finalized in Refugee Coordinator will work with the Resident
2022, the two organizations committed to continuing Coordinator, United Nations Country Team (UNCT)
strengthening ties and collaboration, including in and UN agencies to support refugee resilience,
responding to mixed movements of refugees and inclusion and longer-term solutions. Specifically, this
migrants, in order to enhance response predictability means that the Refugee Coordinator should
and impact. encourage others to contribute towards strength-
ening institutional capacity and helping host
Establishing adequate and stakeholder-inclusive
communities overcome shocks resulting from
coordination mechanisms at country, regional or
neighbouring conflict and/or large numbers of
route-based levels is a crucial component of an
refugee arrivals. When context allows, links between
effective response to mixed movements. While
the RCM coordination structure and the UN develop-
several examples of such mechanisms already exist,
ment system coordination can be strengthened with
they do not represent a standardized coordination
a view to advancing refugee rights and streamlining
model. Context-specific considerations, such as the
humanitarian-development-peace collaboration
profile of the affected population, the dynamic of the
processes, while maintaining UNHCR’s account-
population movements, the position of concerned
ability32 for the overall refugee response coordination
States (origin, transit and destination) and other key
(please refer to the transition section below). It also
stakeholders, will influence the nature and scope of
means including UNCT members in RCM coordina-
coordination arrangements. However, a few essential
tion structures and RRPs, where appropriate.
elements need to be considered whenever discus-
sions on the establishment or strengthening of Within the UN development system, RCs33 lead the
coordination mechanisms to address mixed UNCTs on development activities within the UN
movements take place. These include the co-leader- Sustainable Development Cooperation Framework
ship and shared accountability by UNHCR and IOM (Cooperation Framework), and support countries in
on mixed movements; joint and public messaging on implementing the 2030 Agenda, including the
the mixed nature of the movements; an accountability realization of the Sustainable Development Goals
framework; and well-defined terms of reference. In (SDGs). The Refugee Coordinator works closely with
circumstances where the proportion of people not in the RC and UNCT to advance national development
need of international protection is low in the context priorities and ensure that ‘no one is left behind’ by
of a broader flow, RCM can include specific coordina- including refugees in national development plans
tion arrangements to ensure that migrants receive and encouraging development actors to include
adequate protection and assistance. refugees in their plans and programmes.

IOM and UNHCR are committed to ensuring that any The Refugee Coordinator and partners will ensure
coordination structure to respond to the needs of that refugee protection and human rights issues are
mixed movements of refugees and migrants will adequately reflected and included in the UN
reflect the distinct mandates of the two organizations Common Country Analysis, and that the Cooperation
and their co-leading role to enable joint strategizing Framework explicitly and systematically reflect
and planning, advocacy, programmatic interventions inclusion-oriented plans and programmes.
and coordination on data and information manage-
At regional level, frameworks to engage with devel-
ment.
opment actors include the comprehensive
Find additional resources on the approaches proposed within the GCR “Programme of
RCM guidance website . Action” and the related support platforms that
encourage regional cooperation among countries of

32. The direct communication line from the UNHCR country representative or Refugee Coordinator to the government is
maintained for refugee issues, in alignment with UNHCR mandated accountabilities.[
33. Within the UN System, the Resident Coordinator (RC) is the highest-ranking representative of the UN development system at
the country level and (s)he is the designated representative of – and reports to – the Secretary-General; (s)he is responsible
for the coordination of operational activities for development of the UN and leads the UN Country Teams (UNCTs) on the
development, monitoring and reporting of the UN Cooperation Frameworks.

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origin, transit and destination for greater responsi- Peacekeepers are frequently engaged to enhance
bility-sharing in prevention, protection and solutions. the physical security of refugees, especially in and
These mechanisms integrate cooperating States in around camp settings.
the platforms and work alongside regional and
RCM cooperation with peacekeeping missions is
international organizations committed to the humani-
coordinated by the Refugee Coordinator and the
tarian and development agenda.
relevant Force Commander or Special Representa-
Find more information on UN development coordina- tive of the Secretary General (SRSG) for the
tion on the RCM guidance website . peacekeeping mission. The Refugee Coordinator, in
consultation with the RCF, may consider the conclu-
UN peacekeeping and integrated sion of a formal arrangement with the relevant Force
peacekeeping missions Commander (for stand-alone peacekeeping missions)
or the SRSG (for integrated missions) to facilitate
The RCM can also be implemented in contexts where collaboration between the refugee response and the
a UN peacekeeping or integrated peacekeeping peacekeeping force. The latter could also be part of
mission is present. UN peacekeepers provide the RCF, where appropriate.
security as well as the political and peacebuilding
support to help countries make the difficult early The RCM could also be used to coordinate with
transition from conflict to peace. As a result, many peace actors, including regional organizations,
peacekeeping activities overlap with refugee protec- national governments, civil society, activists,
tion, particularly in relation to the protection of community leaders, and other UN agencies in the
civilians and maintaining the civilian and humanitarian relevant sectors, to ensure the inclusion of refugees
nature of asylum and of refugee-hosting sites. in social cohesion and peaceful coexistence initia-
tives, as well as in peace-making and peacebuilding
processes occurring in their countries of origin.

Poland: Refugees from Ukraine

at the Kapelanka hostel
© UNHCR/Anna Liminowicz

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WORKING EFFECTIVELY WITH DEVELOPMENT ACTORS FROM

THE START

Collaboration across humanitarian- Engaging development actors and

development-peace (HDP) work international financial institutions (IFIs)
Linking humanitarian, development and peace actors’ The RCM can be used to catalyse development
work is a crucial collective effort to reduce people’s interventions and investments in refugee-hosting
humanitarian needs, risks and vulnerabilities. While areas, benefiting host communities and refugees.
collaborative HDP approaches encourage joined-up Engaging development actors in refugee coordina-
complementary efforts, it does not imply that humani- tion structures aims to:
tarian, development, peace and other actors should
■ strengthen alliances that can shift political will and
merge their activities or integrate roles; it calls for
policies in host governments to achieve protec-
programmes or activities to be layered in all contexts,
tion, inclusion and solutions goals;
in line with the respective mandates of each actor.
■ leverage development actors’ financial and
The RCM contributes to operationalizing HDP technical support to enable the transition towards
collaboration by coordinating and combining inclusion in national plans and access to basic
mutually reinforcing humanitarian, development and services;
peace efforts towards solutions for refugees, host ■ mobilize development actors’ support to ensure
communities and other people in need, in line with refugees have access to employment and are
the OECD’s DAC recommendation on the HDP nexus. economically empowered; and
All actors involved in the RCM should engage in ■ increase development investments in return
joined-up analysis to ensure complementarity across areas, to make return sustainable wherever
humanitarian, development and peace planning and possible.
programming. This includes actively engaging in the
These actors include national and local governments,
common country analysis (CCA), ensuring strong
bilateral development cooperation agencies, multilat-
analysis of the context challenges and enablers for
eral and regional development banks and other UN
sustainable programming for refugees and subse-
development agencies and inter-governmental
quently ensuring strategic inclusion of refugees in
organizations. More concretely, integrating interna-
Cooperation Frameworks.
tional financial institutions (IFIs) and other
More concretely, RCM/RRPs should consider development actors in the RCM helps to strengthen
including development and peace actor initiatives in national and local institutional capacity to manage a
the areas of: refugee influx; advocate for the inclusion of refugees
in national plans and services from the start; develop
■ data sharing and the development of baselines;
financial instruments to facilitate the flow of financial
■ context and situation analysis;
support; strengthen social protection systems to
■ joint planning for inclusion and solutions;
support affected host communities and refugees; and
■ collaborative, joint or joined-up programming and
establish surge capacity for service delivery. In
response;
protracted refugee situations, IFIs and other develop-
■ joint or joined-up monitoring and reporting; and
ment actors could also contribute to collecting,
■ resourcing, funding and financing.
analysing and disseminating more targeted socioeco-
Moreover, RCM actors should work with the Resident nomic data.
Coordinator’s Office, Cooperation Framework Results
Please see additional guidance on engaging devel-
Groups, and with Peace and Development Advisors,
opment actors and international financial institutions
to link up existing coordination platforms to support
(IFIs) on the RCM guidance website .
implementation of collaborative approaches to
humanitarian, development and peace work.

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TRANSITION
The RCM incorporates the principle of ‘solutions from tional changes and in step with the interest and
the start’ meaning that the initial emergency capacities of State actors to take over coordination
response should consider, and be designed to functions in line with humanitarian principles.
progress into, medium- to long-term interventions
RCM actors are expected to engage in transition
that involve refugee inclusion and removal of barriers
planning from the outset of an emergency. This
to refugee self-reliance, and to speed up investment
means that RCM sectors/RRP partners, coordinated
in development initiatives that benefit both refugees
through the ISWG and under the guidance of the
and the communities that host them. The approach
RCF, will need to set out criteria or benchmarks34,
progressively transitions the refugee response from a
according to the country context, to be met to guide
focus on immediate, life-saving needs to increased
this process, taking into consideration that the
resilience in line with the Global Compact on
transition process and timelines may not be identical
Refugees and sustainable programming. Some of the
for each sector. The RCM provides strategic and
medium- to long-term aims may be addressed and
operational coordination until such a coordination
coordinated through national development plans or
mechanism for humanitarian actors is no longer
the Cooperation Framework. To advance this
needed or more suitably led under a differentiated
objective, national and international development
national arrangement or if activities are no longer
and peace actors should be involved in the RCM and
humanitarian in nature and better coordinated by
RRPs from the start of a response.
other national or international development coordina-
In parallel, RCM/RRP actors will strive to include tion systems. The Refugee Coordination Forum may
longer-term refugee protection and solutions objec- be retained as a strategic mechanism to support this
tives in national or local development plans, process.
Cooperation Frameworks or other frameworks of
Sector working groups will cease to operate when
relevance, while maintaining UNHCR’s mandated
their coordination function is no longer needed or
responsibilities and accountabilities.As the scope and
transitioned to other mechanisms. There may be
scale of humanitarian needs reduce in a refugee
residual humanitarian coordination needs that cannot
emergency, or the national response systems no
be met through existing government or development
longer require support, the refugee coordination
coordination systems. In this case, the coordination
structure and subsequent Refugee Response Plans
structure for any ongoing humanitarian response
can be downscaled, keeping these mechanisms fit
needs to be tailored to the scope and scale of
for purpose, i.e. coherent with the refugee response
response and number and type of responding
being implemented.
partners.
The RCM’s annual review process is an opportunity
When relevant, a refugee Inclusion/Solutions Working
for all sector working groups, the ISWG and the
Group (see Other working groups section) may be
Refugee Coordination Forum to reflect on the
created to work alongside the sector working groups
progression from emergency life-saving activities
and facilitate analysis and planning to include
towards inclusion, solutions and sustainable
refugees in the overall national response by mapping
programming, identifying successes as well as
opportunities to build on existing capacities,
barriers and strategies to remove them. This review
programmes and plans in coordination with existing
will inform operational planning, with the expectation
sectors.
that humanitarian response activities will scale down
and become more targeted while other activities may More tools and resources on transition can be found
be integrated into national or international develop- on the RCM guidance website .
ment planning frameworks and coordination systems.
This process shall be conducted in close consultation
with the Government. The refugee coordination
structure should likewise evolve alongside opera-

34. Depending on context, these benchmarks could relate to documentation; access to health, education and livelihoods;
inclusion of refugee populations in public service providers; local and institutional ability to fundraise for inclusion; etc.

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ANNEX I: REFUGEE EMERGENCY RESPONSE SCALE-UP

PROTOCOL

Background Purpose and Scope

The 1951 Convention relating to the Status of Based on its mandate and inter-agency commit-
Refugees35 is the centrepiece of international refugee ments, UNHCR updated the Refugee Coordination
protection36, laying out minimum standards for their Model (RCM) in 2024 and introduced the Refugee
treatment. States hold the primary responsibility for Emergency Response Scale-up Protocol (hereafter
protecting refugees. UNHCR, governed by the referred to as the “Refugee Protocol”). The purpose
General Assembly, is the UN agency37 accountable of this Refugee Protocol is to clarify the roles and
for providing protection and assistance and seeking principles of collective action and allow for a more
solutions for refugees. The 2018 Global Compact on predictable and inclusive joint response to refugee
Refugees (GCR)38 reiterated the call for a multi-stake- emergencies.
holder and partnership approach to reach these
In exercising his or her mandated responsibilities, the
objectives, and for UNHCR to play a catalytic and
High Commissioner for Refugees can activate the
supportive role therein, to complement and augment
Refugee Protocol to scale up an inter-agency
the level of assistance provided on the host
emergency response in situations:
countries’ request.
■ characterized by significant refugee flows; or
In November 2018, the Inter-Agency Standing
■ that cause loss of life and/or other serious harm,
Committee (IASC) Principals endorsed protocols on
or significantly affect the rights or well-being of
the Humanitarian System-Wide Scale-Up Activation.
refugees or refugee returnees unless immediate
These protocols are a set of measures designed to
action is taken; and
enhance the humanitarian response in the face of
■ where the existing capacity to lead, coordinate
major sudden-onset crises and/or the substantial
and deliver – together with relevant authorities,
deterioration of a humanitarian situation. The IASC
humanitarian and development actors, and civil
protocols underscore those agencies with a specific
society – does not match the scale, complexity
mandate, such as UNHCR, are accountable for
and urgency of a situation without additional
ensuring a robust, inclusive and effective response.
financial, human and material support.
The protocols note UNHCR’s mandated role to
prepare, lead and coordinate refugee and returning Activating the Refugee Protocol is a call for all
refugee responses.39 relevant stakeholders40 to mobilize additional capaci-
ties and resources for the collective response to
refugee and host community needs, in line with the
RCM and the GCR’s whole- of-society approach.
UNHCR will support the host government(s) in
leading and coordinating the response in a predict-

35. UN General Assembly, Convention Relating to the Status of Refugees, 28 July 1951, United Nations, and UN General
Assembly, Protocol Relating to the Status of Refugees, 31 January 1967, United Nations.
36. In conjunction with the UN General Assembly, Universal Declaration of Human Rights, 10 December 1948, art. 14, that
recognizes everyone’s right to seek and enjoy asylum from persecution.
37. UN General Assembly, Statute of the Office of the United Nations High Commissioner for Refugees, 14 December 1950, A/
RES/428(V).
38. Global Compact on Refugees, affirmed by the General Assembly on 17 December 2018, A/RES/73/151.
39. IASC Standard Operating Procedures, Humanitarian System-wide scale-up activation, Protocol 1: Definition and Procedures,
footnote 7.
40. As per the Global Compact on Refugees, stakeholders include but are not limited to: international organizations within and
outside the United Nations system, including those forming part of the International Red Cross and Red Crescent Movement;
other humanitarian and development actors; international and regional financial institutions; regional organizations; national
and local authorities; civil society, faith-based, and refugee-led organizations; academics and other experts; the private sector;
host community members and refugees themselves.

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able, transparent and inclusive way.41 The Refugee Upon deciding to activate the Refugee Protocol, the
Protocol automatically expires after six months, with High Commissioner for Refugees will:
the possibility of a three-month extension in excep-
■ Designate a Refugee Coordinator, usually UNHCR
tional situations.
country representative. For situations with
multiple refugee-hosting countries, the High
Activation of the Refugee Protocol Commissioner will appoint a Regional Refugee
To inform the decision on activating this Refugee Coordinator;
Protocol, within 72 hours of a refugee influx or a ■ Notify the UN Emergency Relief Coordinator
dramatic deterioration of the situation, the UNHCR (ERC), IASC Principals, UNSDG Chair, and other
country representative will provide the UN High relevant UN bodies and stakeholders of the
Commissioner for Refugees with an initial assess- Refugee Protocol activation and the designation
ment of refugee protection and humanitarian needs, of a Regional Refugee Coordinator, where appli-
and a recommendation on activating the Refugee cable. The notification should also clarify
Protocol, following inclusive consultations with geographic coverage and target population;
response partners42 and relevant stakeholders.43 To ■ Keep stakeholders informed of evolving protec-
facilitate decision-making, the initial assessment tion risks and needs, galvanizing inter-agency
should take into account: resource mobilization; and
■ Notify the ERC, IASC Principals, UNSDG Chair, and
■ Scale: the number of new refugee arrivals, those involved in the response, in case of an
including in relation to the existing refugee exceptional three- month extension of the
population in the host country. Refugee Protocol.44
■ Urgency: critical protection risks and the level of
access to basic services and life-saving assis-
tance. Implications of Refugee Protocol activation
■ Complexity: overlapping crises; humanitarian Upon activation of the Refugee Protocol, the
access and security risks; social, economic and (Regional) Refugee Coordinator’s responsibilities
political factors; and the threat to the civilian include:
character of asylum.
■ Consulting immediately with relevant national
■ Capacity: host government and local community
authorities at the highest level, RC/HC and with
absorption capacities; presence of local and
the members of the UN Country Team / Humani-
international organizations with refugee expertise;
tarian Country Team on effective ways to bolster
and the availability of human and financial
operational capacity and to build on existing
resources for immediate response.
coordination mechanisms, in line with the RCM.45
■ Risk of failure to deliver effectively and at scale
■ Leading the collective refugee response in
to refugees and host communities.
support of national authorities. This involves:
Pending the initial assessment and decision to
1. establishing the coordination system and
activate the Refugee Protocol, an immediate inter-
designating agencies to coordinate sectors,
agency, protection- centred emergency response
mobilizing local and international partners with
should be initiated. The assessment and decision-
appropriate expertise, operational capacity
making should be guided by the principles of ‘do no
and geographical presence, and ensuring
harm’ and ‘no regrets’ to ensure a timely, effective
meaningful participation of refugees and
and efficient emergency response.

41. In line with the UNHCR Policy on Emergency Preparedness and Response (UNHCR/HCP/2023/01).
42. Response partners are stakeholders with operational response capacity on the ground, such as UN agencies, national and
international NGOs, among others.
43. Such as relevant authorities, the Resident Coordinator/Humanitarian Coordinator (RC/HC), the Special Representative of the
Secretary-General (SRSG) if present.
44. Based on stakeholder consultations and recommendation from the (Regional) Refugee Coordinator (see Heading IV of this
Refugee Protocol).
45. 2024 RCM guidance.

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affected host communities (based on the Refugee Coordination Forum (RCF); sector-
intersection of age, gender, and diversity) in all specific working groups at the national level as
stages of the refugee response; and needed, including a protection working group, as
2. incorporating cross-cutting priorities and well as at sub-national level if needed; an inter-
ensuring that refugee response principles and sector technical coordination forum, where
commitments are upheld, including but not needed, that is attended by cross-cutting task
limited to the centrality of protection, ‘do no forces or working groups, where sector-coordi-
harm’, the protection from sexual exploitation nating agencies are represented at a technical
and abuse, Accountability to Affected People, level. If the Refugee Protocol concerns multiple
gender-based violence, localization, and the countries, regional-level coordination should also
sustainability and engagement of development be considered.
actors from the start. ■ Response planning, monitoring and resource
mobilization: coordinating the development of a
■ Ensuring collective engagement in needs assess-
comprehensive inter-agency RRP centered on the
ments; gap analysis; data and information
Protection and Solutions Strategy; monitoring and
management; the implementation of programmes
report on the response implementation and
that support public service providers; and
impact; raising the profile of the crisis through a
resource mobilization and advocacy, including on
common communication strategy to attract
protection, which also informs the (Regional)
necessary political, financial47 and technical
Refugee Response Plan (RRP).
support, including through dissemination events;
■ Overseeing, in collaboration with relevant stake-
and tracking contributions received for the RRP.
holders, the development of an emergency
■ Promoting protection mainstreaming across the
inter-agency RRP in the first week of the crisis to
refugee response: ensuring that protection
cover the first three to six months. An RRP sets
remains central to the response and support all
out the comprehensive protection, multisectoral
sectors in their mainstreaming protection,
assistance and solutions strategy for the refugee
including by being accountable to forcibly
response based on the feedback of refugees and
displaced and stateless people and by consid-
affected communities; priority areas of interven-
ering age, gender and diversity in all response
tion; comprehensive financial requirements; and a
activities.
reporting, monitoring and evaluation framework. If
■ Information management: establishing or
multiple countries are affected, a regional RRP will
reinforcing data and information management
be issued. If the situation persists, the RRP should
capacity and, where possible, anchoring it in
be reviewed and extended.
existing statistical and census mechanisms.
In line with the 2024 RCM guidance,46 stakeholders Ensuring the development and dissemination of
contribute to the collective response through: high-quality information products that use reliable
data on population figures, needs and the
■ Needs assessments: engaging in joint participa- response.
tory needs assessments and gap analyses across ■ Advocacy and information sharing: Regularly
and within sectors, taking into account the views engage, update and coordinate with the RC/HC
of people of different age, gender and diverse and UNCT/HCT, where present, and ensure
characteristics, to inform response strategies and regular advocacy and information sharing with
priorities, advocacy, and fundraising for the donors and government counterparts as well as
refugee response. refugees, affected host communities and the
■ Coordination system: collectively supporting the public at large – particularly regarding maintaining
establishment of a national-level coordination the protection space.
mechanism, co-led with the government and
adapted to the context. This includes a strategic

46. 2024 RCM guidance, section on Leadership and Coordination Accountabilities.

47. For new or rapidly deteriorating refugee situations, UN agencies may call upon the top UN official in the country to facilitate
the release of urgent allocations from pooled funds.

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Expiration of the Refugee Protocol The expiration of the Refugee Protocol does not
The Refugee Protocol automatically expires after six imply that the crisis it relates to has come to an end.
months. Before the expiration, the (Regional) Refugee Rather, it could indicate that the coordination
Coordinator(s), in consultation with the Refugee Coor- structure has been set up and that the inter-agency
dination Forum(s), may recommend a three-month operational response has been scaled up and
extension to the High Commissioner for Refugees. stabilized. The RCM and the (Regional) RRP can be
This recommendation should be based on excep- prolonged under the leadership of the (Regional)
tional circumstances, such as significant constraints Refugee Coordinator beyond the expiration of the
on the response in the initial period or a further Refugee Protocol, until other coordination mecha-
deterioration of the situation. In the event of a nisms with the host government ensure refugee
Refugee Protocol extension, the High Commissioner inclusion in multi-year instruments or frameworks
notifies the Emergency Relief Coordinator, IASC with longer-term objectives that emphasize solutions
Principals and other key stakeholders accordingly. and socioeconomic inclusion.
The (Regional) Refugee Coordinator, with the support
of the RCF(s), will provide clear messaging on the
Refugee Protocol expiration.

REFUGEE PROTOCOL TIMELINE

72 hours 1 week 6 months

Emergency Activation Launch of the emergency RRP End

Exceptional 3 month
Assessment Scale-up protocol
extension
Coordination system is confirmed
UNHCR Country Representative Upon activation, the UNHCR High
provides initial assessment to Commissioner will:
UNHCR High Commissioner, in • Designate a Refugee Coordinator
consultation with partners, with • Notify the ERC, IASC Principals,
recommendation to activate the UNSDG Chair and other
protocol. stakeholders

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ANNEX II: REFUGEE RETURNEES: COORDINATION AND

RESPONSE
Seeking durable solutions for refugees being an national and local authorities and development and
integral part of its mandate, UNHCR is accountable peace actors, and the participation of returnees and
for coordinating the voluntary repatriation of host communities, since the areas from where people
refugees. Voluntary repatriation and reintegration have been displaced often require investment in
activities are generally governed by a tripartite services and infrastructure. A good practice is to
agreement, usually concluded between the govern- adopt an area-based, rather than status-based,
ments of the country of origin and the country of approach as refugees will most likely return to the
asylum and UNHCR. While concluding this same locations to which IDPs are returning.
agreement is a standard practice in situations where
As such, including instances where return happens
voluntary repatriation is facilitated or promoted, it is
under conditions that are not optimal (e.g. where
also a good practice to establish tripartite agree-
voluntariness is in question, or where there is a
ments when returns are self-organized or occur
situation of force majeure such as conflict forcing
spontaneously under adverse circumstances, so that
refugees to leave from the country of asylum, or
UNHCR can assess if refugees were able to make an
when refugees decide on their own to return despite
informed and voluntary decision and UNHCR has
conditions not being conducive), there may be a
access to them upon return. Having free and unhin-
need for returnees to be included in the humanitarian
dered access to returnees, so that it can monitor
coordination mechanisms that are already in place,
conditions upon return and identify and address
including the RCM and the cluster approach, with
challenges and barriers to sustainable return and
UNHCR playing a lead role on the refugee return
reintegration through broad and early established
component on the latter. Where the cluster approach
partnerships, is part of UNHCR’s mandated responsi-
is not activated but the RCM is in place, a working
bility48.
group on return and reintegration could be estab-
Which coordination mechanism is best depends on lished.50
the context. Addressing needs upon return49 requires
coordination with a broad range of actors, including

48. Executive Committee of the High Commissioner’s Programme, Voluntary Repatriation No. 40 (XXXVI) - 1985, 18 October
1985, No. 40 (XXXVI):”(l) The High Commissioner should be recognized as having a legitimate concern for the consequences
of return, (…) The High Commissioner must be regarded as entitled to insist on (her) legitimate concern over the outcome
of any return that (she) has assisted. Within the framework of close consultations with the State concerned, (she) should be
given direct and unhindered access to returnees so that (she) is able to monitor the fulfilment of the amnesties, guarantees, or
assurances on the basis of which the refugees have returned. This should be considered as inherent in (her) mandate.”
49. Including the protection situation, restoration of rights, and reintegration to ensure that return was a sustainable solution.
50. See Return and Reintegration Working Group

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