Chairman of the Commission: Mr. Teofilo Siman, President of the Salvadorean Red Cross Society
Co-Chairmen: Mr. Boris Shikhmuradov, Minister for Foreign Affairs of Turkmenistan; Mr. Christopher Lamb, Ambassador of Australia
Rapporteur: Ms Anne Anderson, Ambassador, Permanent Representative of Ireland


It is a privilege to have been the Rapporteur for this important theme.

Definitions of "Vulnerable People"

An appropriate starting point is the attempt to define the term ‘vulnerable people’. Many delegates addressed this question and offered definitions ranging from the general to the highly specific. Perhaps the single point most often made was that poverty creates vulnerability and poverty eradication is critical to reducing vulnerability.

The shocking statistics of world poverty were quoted - “this battlefield called poverty”, as one delegate called it. The growing economic disparities between and within nations creates a challenge for all our governments as well as for humanitarian actors. Levels of development aid, issues of indebtedness, the rules of international trade - all contribute to the context in which the Red Cross operates. It was emphasized that “globalization of responsibilities” must be part of the globalizing trend.

More specific categories of vulnerable people were identified by many speakers. Women, children, the elderly, the handicapped, refugees and displaced persons were among the categories most frequently cited.

One general point, however, is worth making. Vulnerability conjures up images of victims. Speaking of one vulnerable group - refugees - in her opening address, the Director General of WHO, Dr. Brundtland, reminded us: “Refugee populations are not just passive receivers of handouts, but resourceful participants in their own emergency within the limitations forced on them”. This point was echoed in a number of interventions - vulnerable people deserves our sympathy but also require our respect; they must be involved as actors rather than treated as objects of humanitarian action.

Some speakers described very specific categories of vulnerable people that are the particular focus of their national society activities. One speaker, for example, identified teenage single mothers and their children as the vulnerable group on which her national society concentrates most of its endeavors.

It is clear that vulnerability is part of the human condition and none of us is immune. But as many speakers emphasized, it is the most vulnerable - those who have multiple vulnerabilities leaving them doubly and trebly at risk - who need our most urgent attention.


Goal One: Improved health for vulnerable people based on strengthened co-operation between States and National Societies

A number of delegates focussed on health improvement. It was noted that access to health care is a right that populations should enjoy but also a key ingredient in development.

It was pointed out how far we are from achievement of the goals of the WHO Programme “Health for all by the year 2000". The burden of ill-health and disease borne by the populations of developing countries was cited. AIDS, tuberculosis and other infectious and communicable diseases take a terrible and disproportionate toll in the developing world. Child mortality remains high in many countries and access to basic health care limited. While the resources problems facing governments in developing countries was fully recognized, the disparity between military spending and health spending in some developing countries was also pointed out.

Delegates repeatedly underlined the central and irreplaceable responsibility which governments bear for the health development of their populations. But this responsibility is best discharged through partnerships at national, regional and international levels. Positive examples of partnership include the new African Red Cross and Red Crescent Health Initiative 2010 (which aims to bring together Ministries of Health, national societies and international organizations) and the World Bank’s global road safety partnership, which brings together a number of governments, civil society, and the private sector.

Some speakers felt there is considerable scope for further progress in having international organizations accept national Red Cross and Red Crescent societies as partners in implementing health care.

Particular attention was paid during the debate to AIDS and tuberculosis. A number of speakers stressed the need for more international mobilization to deal with the ravages of AIDS in the developing world - the present situation was described as “socially, politically and economically intolerable”. Tuberculosis was seen as an “indicator disease that picks out the most vulnerable”. Its high incidence in societies in transition was noted. It was emphasized that new WHO care strategies to combat tuberculosis involve tasks that are particularly well suited for ICRC volunteers.


Goal Two: New initiatives to meet the needs of vulnerable people and to reduce discrimination and violence

I have indicated already the categories of ‘vulnerable people’ defined in various interventions. Among the various categories highlighted, very many speakers focussed on children - street children, children who are sexually exploited, those who are engaged in the worst forms of child labour and children drawn into armed conflict. Reaching out to these - the most vulnerable among the vulnerable - must be a key priority. A number of governments and national societies shared their experience and thinking on how this outreach is best achieved; various initiatives such as the creation of specific task forces at national level were described.

Reducing discrimination and violence in the community was also much discussed. Poverty, social isolation and drugs have let to violence becoming pervasive in many of our societies. The incidence of domestic violence has turned the home into a place of threat and terror for millions of women around the world. As one speaker put it, “the home and community have become war zones” for many.

Much was said during the Conference about the need to champion individual and community values which encourage respect for other human beings. Governments and National Societies have traditionally worked to disseminate the Fundamental Principles and to increase awareness of humanitarian law and this must continue to be a priority. However, there was a call for a more pro-active advocacy role to seek to influence behaviour in the community, to oppose discrimination, fight racism, stop violence and build a culture of non-violence. A stronger collective voice needs to be found.


Goal Three: Increased National Society capacities and partnerships

There was a particularly rich discussion on this theme, with a number of cogent points being made. A range of partnerships was discussed

- between national societies and governments
- with NGOs
- with other humanitarian actors
- with business and the private sector
- between national societies in different countries.

One speaker also referred to new models of partnership between humanitarian actors and the military, and the need for such partnerships to be particularly carefully crafted.

Many government and national society representatives described innovations in their partnership arrangements. One national society for example, described a three year programme with government which it welcomes as providing focus and continuity and felt could act as a model for others. Another speaker drew attention to the potential for governments to strengthen national societies by granting favourable tax treatment to donations.

Many delegations underlined the values which must inform all partnerships: integrity, mutual respect, transparency, recognition of each other’s culture, building on respective strengths.

As a contribution to strengthening relationships between national societies around the world, one delegate proposed that the ITU be approached to provide teleconferencing facilities which would facilitate linkages between societies. A more professional approach to communications was seen as important in enhancing the work of national societies generally.

The issue of capacity building was addressed by very many speakers. Enhancing local capacity was seen as vital in all countries but there was a particular emphasis on capacity building in disaster prone countries. International Federation's President Dr. Heiberg in her opening statement invited governments to unite with national societies in a “partnership for preparedness”. As she and others emphasized, effective preparedness is almost always at local level; planning and training are essential to ensure that response capacities are there when the emergency strikes.

It was widely recognized that volunteers provide the backbone of the Red Cross Movement. Some delegates referred to worrying trends in volunteer numbers and emphasized the need to recruit, train and particularly to appeal more successfully to young people to involve themselves as volunteers.

Finally, some speakers referred to the need for the Movement itself to constantly strive to become more unified and more transparent. As one speaker put it, we should “look at the future of our Movement without any taboos”.

I conclude by emphasizing the strong support for the draft Plan of Action on the part of all who spoke.