The VEDI dam in Armenia was built in partnership with the Agence Française de Développement and with the support of the European Commission. It will irrigate 3 000 hectares of farmland in the Ararat plain. Photo AFD.
2023 is already a long way off, everything is moving so fast. Humanitarian actors live in an eternal present. It’s cold right now in Armenia or Ukraine, it’s scary tonight in Sudan too, and thirst won’t wait until tomorrow in Mayotte or elsewhere. Humanitarians don’t drive looking backwards, but the OECD does.
All the humanitarian responses around the world involve thousands of individual projects that need to be aggregated to get an idea of the overall amounts, to measure and compare. Once a contract has been signed, the amounts disbursed are recorded by each of the geographical or thematic offices, then put together by a ministry – Bercy for France – and sent to the OECD, which checks line by line that the projects correspond to the definition of Official Development Assistance (ODA), of which humanitarian assistance is an important part.
In mid-January this year, the OECD published the official Official Development Assistance figures for 2023. In 2023, this ODA amounted to USD 223.3 billion, continuing an upward trend that began in 2007. This increase can be explained in part by the 5.9% rise in humanitarian funding.
The largest donors
For ODA in general, and for humanitarian assistance in particular, the concentration remains as high as ever. Firstly, the United States (USD 64.7 billion in ODA, including USD 14.5 billion in humanitarian assistance). Humanitarian funding increased in volume and as a percentage of ODA under the first Trump administration, and it is difficult to predict what will happen from now on even in the short term. Much further behind is Germany (USD 37.9 billion in ODA, including USD 2.4 billion in humanitarian assistance), followed by the European institutions (USD 26.9 billion in ODA, including USD 3 billion in humanitarian assistance). In sixth place, after Japan and the United Kingdom, France was one of the ‘big donors’ in 2023 (USD 15 billion in ODA, but only USD 410 million in humanitarian assistance). A drop in one of the largest contributors has the potential to destabilise the entire humanitarian funding system, as this drop could not be compensated for by the sum of the medium-sized or smaller contributors, if only they were able and willing to do so. The budget announcements for 2024 and 2025, already discussed in previous editions of Humanitarian Challenges, show that this is where we are. The members of the Development Assistance Committee (DAC), which brings together the main contributors to ODA, still provide by far the largest share of the effort. Non-DAC donors, i.e. those who are not part of what are sometimes called “traditional donors”, are major contributors to humanitarian solidarity, but the systems in place do not allow for much predictability. In 2023, humanitarian funding from non-DAC donors will be driven by Turkey, which will remain above the USD 5 billion mark for the seventh consecutive year, followed by the United Arab Emirates, which will increase from USD 278 million in 2022 to USD 1 billion in 2023.
French ODA
French ODA is following the same overall trends as the other DAC countries. However, in addition to the overall drop in ODA in 2023, France is characterised by significantly lower humanitarian funding. The recent increase in humanitarian funding is an interesting development, but does not really change the “humanitarian effort”, as humanitarian funding will rise from 2% to 4% of French bilateral ODA between 2022 and 2023, still far behind the DAC average of around 15%. The two graphs below show the nature of France’s ODA and that of DAC countries. (The graphs are interactive here: FR Final 2023 statistics | Flourish)
Source : OECD, FR Final 2023 statistics | FlourishSource : OECD, FR Final 2023 statistics | Flourish
Where does this aid go? In 2023, Ukraine was for the second consecutive year the largest recipient of ODA and other concessional financing, with USD 38.9 billion, an increase of 28.5% compared to 2022. Ukraine received almost five times more aid from DAC members than the second largest recipient, India. This also applies to humanitarian funding, which, taking all donors together, has increased by 23% in 2023, reaching USD 3.5 billion, the leading global recipient.
Other countries receive more modest amounts of humanitarian aid, with significant variations in response to the year’s events. Armenia received USD 5 million in 2022, but USD 35 million in 2023. Chad received USD 379 million in assistance, up 119% with the additional arrival of Sudanese refugees.
Don’t forget that 2023 was also marked by several natural disasters in already fragile contexts such as Libya, Syria and Papua New Guinea, Madagascar, Malawi and Tanzania, as well as Morocco and Turkey. In all these contexts, including those that generally receive little aid, humanitarian funding has been substantial.
The central Sahel has remained at similar levels of humanitarian funding, showing that the various coups d’état, while they have had a clear impact on bilateral development cooperation, have had less of an effect on the response to humanitarian needs.
With a 32% fall, Afghanistan remains at USD 1.4 billion, a level of humanitarian assistance that is still well above the 2020 level (USD 562 million). In Yemen, aid has fallen by 16% but remains high (USD 1.4 billion). Few other crisis contexts have seen a significant drop in humanitarian funding. Countries that used to receive little humanitarian aid have received less, with a notable downward trend in Iraq since 2016, and other countries with more established development trajectories (Sierra Leone, Liberia).
Who delivers this humanitarian aid? Financial structures are well established, built by and for actors who have developed mechanisms that enable them to mobilise funds quickly. In 2023, multilateral agencies mobilised half of all humanitarian funds, although the trend is downwards. These same agencies mobilised 60% of humanitarian funds in 2020. The proportion of humanitarian funding mobilised by NGOs remains more or less stable at 28% in 2023.
Since 2021, there has been a noticeable shift towards increasingly significant contributions to resilience projects marked as humanitarian, for example by the International Finance Corporation (IFC) in Afghanistan or Ukraine, on issues of forced displacement or food security. These channels, marked ‘other’ in the graph above, will reach 15% in 2023, compared with just 3% in 2020.
At a time when the classification of projects is not always clearly humanitarian in the “Dunantian” sense of the term, when the long-term and the short-term are intertwined, new players are appearing on the humanitarian finance scene. This trend is set to continue, taking into account the expected decline in traditional ODA and even the conceptual changes underway regarding the very nature of cooperation between countries. It’s best to be prepared.
Cyprien Fabre is head of the “crises and fragility” unit at the OECD. After several years of humanitarian missions with Solidarités, he joined ECHO, the European Commission’s humanitarian department, in 2003, and held several positions in crisis contexts. He joined the OECD in 2016 to analyze the engagement of DAC members in fragile or crisis countries. He has also written a series of “policy into action” and “Lives in crises” guides to help translate donors’ political and financial commitments into effective programming in crises. He is a graduate of Aix-Marseille Law School.
I invite you to read these interviews and articles published in the edition :
On Monday 18 November, the Veolia foundation celebrated its 20th anniversary… 20 years, the age of youth… But for this atypical foundation, the only one of its kind in France, these twenty years have been those of a human adventure, of self-building to better unite project support and skills sponsorship, while optimising the Veolia group’s three core businesses (water, energy and waste management) in the service of others and the planet. During the evening, Antoine Frérot, Chairman of the Veolia Group and the Veolia Foundation, and other speakers addressed nearly two hundred guests, including Veoliaforce volunteers, humanitarian and institutional partners, and project leaders. For Défis Humanitaires, this anniversary is an opportunity to take stock and to recall the fundamentals of this foundation, which is now a key player in humanitarian aid, development, support for initiatives and the defence of the environment and biodiversity. Interview with David Poinard, CEO of the Veolia Foundation.
This interview is one of a series published with CartONG, Résonances Humanitaires (RH), INSO, Coordination Humanitaire et Développement (CHD), Première Urgence Internationale, Solidarités Internationale and the Crisis and Support Centre of the Ministry of Europe and Foreign Affairs. There are more to come, notably with VOICE, the coordination of humanitarian NGOs with the European Commission and ECHO in Brussels.
Hello David Poinard. Before going any further, could you tell us about the foundations of the Veolia Foundation in terms of its statutes and how it operates within the Veolia group?
The Veolia Foundation is a corporate foundation under the law of 23 July 1987. Beyond this legal aspect, we are a team of about ten people, supported by the Veolia group. We are the Veolia Group Employees’ Foundation. As the cornerstone of our action, they can be involved as project sponsors or Veoliaforce volunteers. In this way, they embody the Veolia Foundation’s two levers for action: financial support and skills sponsorship.
More specifically, how is the Foundation governed?
The Board of Directors of the Veolia Foundation is made up of Veolia representatives and outside figures who bring us their perspective. It defines the Foundation’s strategic orientations and oversees its sound management. It approves commitments in excess of €150,000, while the Selection Committee examines other projects submitted to the Foundation.
The Veolia Foundation was set up in 2004, partly on the initiative and commitment of Veolia employees. At the time, Veolia Waterforce, a humanitarian intervention structure in the field, was added to this ‘redistributing’ foundation. Under the impetus of Thierry Vandevelde, Managing Director of the Foundation at the time, it became Veoliaforce. Can you elaborate on this evolution-construction towards a unique foundation model, combining a redistribution component as a ‘project sponsor’ and a component as a field player?
Originally, there was a fairly traditional corporate foundation: employees could ask it to support charities, often local ones, in which they were involved in their spare time. When the Waterforce unit, renamed Veoliaforce, joined the Foundation, we gained a lever for action and changed our nature by adding an operational aspect to our actions. We have one specific feature: our actions are always carried out with partners. We work regularly with the French Red Cross, Médecins Sans Frontières and Solidarités International. And the United Nations
The Veolia Foundation has also joined the France humanitarian response team. When, just over a year ago, the Kakhovka dam was destroyed in Ukraine, leading to flooding and the displacement of populations, the Veolia Foundation took part in an operation led by the Crisis and Support Centre (CDCS) of the Ministry of Europe and Foreign Affairs.
From your point of view, what have been the main challenges and issues that the Veolia Foundation has had to take up or assume over the past twenty years, in order to respond synergistically to the various missions it has set itself: humanitarian emergencies and development, social reintegration, protection of the environment and biodiversity, research and training?
In twenty years, the Veolia Foundation has built bridges between worlds that did not speak to each other and opened doors between the private and public sectors. Today, one of its greatest successes is that these doors no longer exist. With every humanitarian disaster, exchanges are natural and fluid.
The Foundation has changed in nature, but it has also changed in dimension by being able to support projects over the long term. And I’m thinking of the Tara Ocean Foundation. The schooner Tara and the Veolia Foundation are a bet on trust, on our ability to understand the role of the ocean in regulating the climate, on a collective ambition. We have travelled thousands of miles across the seas following Tara. I believe we have helped to raise awareness of a Tara generation. The generation that turned 20 with the Tara Ocean Foundation last year, and with the Veolia Foundation this year.
How many projects has the Veolia Foundation supported since it was set up in 2004, and how many skills sponsorship projects have it carried out?
The Veolia Foundation has supported more than 1,500 projects and carried out more than 200 skills sponsorship projects.
The number of your partners, particularly humanitarian ones, is impressive: Médecins Sans Frontières, the Red Cross, Solidarités International, Première Urgence, Action contre la faim, etc. On a more institutional level, the Crisis and Support Centre of the French Ministry of Europe and Foreign Affairs…. There are also partnerships with the Norwegian Refugee Council, the Bioforce Institute and even UNICEF and UNHCR… How are these partnerships built, based on what criteria and on what occasions or initiatives? What common thread binds them together?
The common thread is the need for effectiveness. We want to be useful for the beneficiary populations. We need to be both reactive in the event of a humanitarian emergency and determined when addressing long-term issues, such as sanitation in refugee camps. To achieve this fluidity in our exchanges, we need to get to know each other and exchange ideas. With this in mind, in 2020 we set up the WASH (Water, Sanitation, Hygiene or EAH editor’s note) Humanitarian Workshops, a biennial event organised with the Partenariat Français pour l’Eau (PFE), which brings together a number of players in the sector to identify innovations, share feedback and, generally speaking, talk to each other. I believe we now have a well-established place in the sector as water and sanitation experts dedicated to the humanitarian sector. We keep coming back to this: our Veoliaforce volunteers are our added value.
Veoliaforce, a field intervention structure that supports humanitarian NGOs with expertise specific to the Veolia group (water, energy and waste management), works with volunteers who are Veolia group employees made available during their working hours. How are applications and in-house technical training organised?
Each year we organise training for around thirty candidates for the Veoliaforce voluntary service. These employees, from all Veolia’s business lines, learn how to deploy Aquaforces, our mobile water purification units, and get to know our partners in the humanitarian sector, who are present during the training.
As you mentioned, Veoliaforce volunteers are employees of the group who go on mission during their working hours, with a hierarchy and colleagues who support the effort in their absence. When a Veoliaforce expert leaves, a whole team, in addition to the Foundation, is mobilised to make this possible.
The Veolia Foundation is present or active in a great many countries, and the ‘map of projects’ is impressive. Can you give some concrete, recent and significant examples of interventions, particularly humanitarian, with your partners, on decisive issues, situations or challenges?
In recent months, we have been working in refugee and displaced persons camps in eastern Chad. The Office of the United Nations High Commissioner for Refugees (UNHCR) is facing one of the most massive humanitarian crises in the world today. It asked the Veolia Foundation to improve access to water in the 12 camps around Farchana. We provided continuous support for five weeks to audit and make recommendations.
In another example, this time with Médecins Sans Frontières (MSF), several Veoliaforce experts travelled to Goma, in the east of the Democratic Republic of Congo, to support the NGO in improving access to drinking water in hospitals and camps for displaced persons.
And on a much more local level, in the Paris region, we are supporting a back-to-work project organised by Maison Solidarité Femmes 95 to help women who have suffered violence. Our projects and missions take us to places where humanity is under attack.
To keep things practical and humanitarian, a simple question: when does Veoliaforce intervene?
It all starts with an exchange with a partner who, through their knowledge of the field, lets us know what type of intervention is needed. In a post-disaster context, it is the feedback that leads us to determine the human and material resources needed to restore access to water, for example. Does the area have fresh water sources? Is it necessary to treat brackish water? The answer will lead us to give priority to a particular Aquaforce [mobile drinking water treatment unit].
In a post-emergency humanitarian context, or even in a development project, you have to find the right moment to intervene in the most useful way possible. Depending on needs and the availability of our Veoliaforce experts, we structure the timetable for missions with our partners.
Access to drinking water is already, and will become even more so, one of the decisive challenges of the 21st century… Does the fact that you are the foundation of a group that specialises, among other things, in water services give you a more global – we would say holistic – ‘intelligence’ of this challenge? And how does this intelligence enable you to put in place ‘tailor-made’ solutions on the ground (I’m also thinking of your adaptable and modular Aquaforces and Saniforces technical solutions)?
The challenge is to combine the business expertise available within the Group with our partners’ knowledge of the field. The Aquaforce RO, adapted to brackish water environments, was born out of the need, gradually identified, to be able to adapt to environments where fresh water is scarce. Saniforce, a low-carbon solution for treating faecal sludge in humanitarian contexts, was born out of field observations: when camps for displaced persons or refugees become permanent, the question of sanitation becomes a major public health and environmental issue.
In addition to humanitarian and development work, the Veolia Foundation is also involved in social reintegration and the protection of the environment and biodiversity (the Tara missions you mentioned spring to mind). Can you explain how important these causes are to you, and how you link them to the Foundation’s other missions and to the Veolia Group’s core businesses?
Like Veolia, we want to be a player in the inevitable ecological transformation we have to go through. To be understood, embodied and activated, this transformation must be fair. This is a major challenge for our contemporary societies. By investing in social links and integration through economic activity, we want to ensure that no one is forgotten along the way.
As for the environment, the challenge is to live in harmony with nature, preserve resources and biodiversity, and limit climate change. In other words, our challenge is to ensure that the Earth remains habitable. The Foundation encourages actions that educate the public or raise awareness of eco-responsible behaviour. It also supports ambitious projects to understand and restore natural environments.
Do you have any practical examples of training initiatives in one or more of the Foundation’s areas of activity that are particularly close to your heart?
Training is not one of the Veolia Foundation’s areas of activity as such, but it is one of the means we use to promote our action. We train Veoliaforce volunteers and, increasingly, we train the staff of humanitarian partners in the use of our solutions. We are involved with Bioforce, the French Red Cross and Médecins Sans Frontières. In the field, we train the staff of UN agencies to take over the production of drinking water.
It will soon be 2025; what prospects do you see for the work of the Veolia Foundation in a world where humanitarian and development needs are exploding and conflicts are spreading? What challenges do you think the Foundation will have to meet, and how might it adapt its modus operandi or approach?
This year we’re moving up a gear, both in terms of human resources, by setting up a network of Veolia ambassadors to increase the impact of our action in the regions, and in terms of material resources, by setting up hubs where our Aquaforces will be pre-positioned so that they can be transported more quickly to where they’re needed. The idea is that, with our small team of less than ten people, we can leverage our resources to duplicate more easily, deploy more quickly and respond more effectively.
More specifically, at a time when funding for humanitarian aid and development is falling and crossing the exponential curve of needs, do you think that foundations such as the Veolia Foundation have a greater role or responsibility to assume?
Our responsibility is that of the foundation of a group present in all essential services. We want to be able to respond whenever the need arises and our partners call on us.
In conclusion, what would you like to say to your partners in projects and actions, and to our readers?
A big thank you, because without them, we wouldn’t be much of anything! By submitting projects to us, by calling on us in emergencies or for development, they push us to be better. They are the key to our effectiveness. I might as well tell you that we haven’t finished working together, because it’s necessary, because it’s useful. At 20, you’ve got your whole life ahead of you!
Delegate General of the Veolia Foundation since April 2024, David Poinard is a hydrogeologist by training and holds a doctorate in urban hydrology from INSA Lyon. He has held a number of management positions at Veolia Water since 2001, and is also involved in Veolia Foundation operations as a Veoliaforce volunteer, working on development projects or in crisis situations (natural disasters and armed conflicts). He has also chaired the French Water Partnership (FWP) working group on ‘WASH in crisis and fragile contexts’ since 2020.
Cyprien Fabre is head of the “crises and fragility” unit at the OECD. After several years of humanitarian missions with Solidarités, he joined ECHO, the European Commission’s humanitarian department, in 2003, and held several positions in crisis contexts. He joined the OECD in 2016 to analyze the engagement of DAC members in fragile or crisis countries. He has also written a series of “policy into action” and “Lives in crises” guides to help translate donors’ political and financial commitments into effective programming in crises. He is a graduate of Aix-Marseille Law School.
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