URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

Udenrigsudvalget 2024-25
URU Alm.del Bilag 182
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Danish Organisation Strategy for ICRC

Introduction:

ICRC was established as a private association under Swiss law in 1863.

Today, it has a status equivalent to that of an international organisation

in order to fulfil its humanitarian mandate and mission.

ICRC is an

impartial, neutral and independent humanitarian organisation

working globally to protect and assist the victims of armed conflict

and other situations of violence.

ICRC is formally recognized in the

Geneva Conventions, their Additional Protocols,

the Statutes of the

International Red Cross and Red Crescent Movement, and by the

International Conferences of the Red Cross and Red Crescent.

Key results:



Protection and humanitarian assistance delivered by the ICRC has

a relevant and sustainable impact for affected people.



Behaviour of parties to conflict is influenced to prevent violations

of International Humanitarian Law (IHL) and alleviate human

suffering.



Based on the leveraging of synergies between humanitarian and

development efforts, affected people’s vulnerabilities are reduced

and their self-reliance is enhanced.



Strengthen ICRC’s engagement in integrating climate and

environmental risks into its work.

Justification for support:



ICRC’s work is well aligned with key Danish priorities on

protecting victims of armed conflict and delivering humanitarian

assistance to vulnerable affected populations.



ICRC is the guardian and promoter of IHL and interacts with

states parties to the Geneva Conventions as well non-state armed

groups.



ICRC’s operations in protracted conflicts is aligned with

Denmark’s objective to consider longer-term consequences from

the onset of a crisis and strengthen the coherence between

humanitarian action and development efforts.



ICRC’s frontline humanitarian action is a stabilising factor and a

building-block for peace.

How will we ensure results and monitor progress:



Monitoring of Danish priority areas is based on ICRC’s own

reporting on its strategy for 2024-2027.



Active participation in formal and informal meetings, thematic

briefings, membership of the Donor Support Group and at the

International Conference of the Red Cross and Red Crescent.



Annual consultation on key priority areas.

Danish involvement in governance structure:



Denmark is part of the Donor Support Group.



Denmark actively participates in the International Conference of

the Red Cross and Red Crescent Movement

File No.

Responsible

Unit

Mill.

Commitment

Projected ann.

Disb.

Duration of

strategy

Finance Act

code.

Desk officer

Financial

officer

24/19161

FN-Genève

2025

2026

2027

2028

Total

340

2025-2028

06.39.01.14

Aino Askgaard

Alberte Sofie Linde Forsell

Mads Ettrup

SDGs relevant for Programme*

Overall goal to

leave no one behind

Budget

Core voluntary funding

340 million DKK

Total*

340 million DKK

*Subject to annual parliamentary approval

Risk and challenges:



Financial and political support to principled humanitarian

action.



ICRC’s humanitarian neutrality



Humanitarian space and staff security.



Fraudulent acts and sexual exploitation and abuse.

Strategic objective(s)

Contribute to the

achievement of the Danish

strategy “The World We

Share”, including protection

of the most vulnerable,

effective access to protection

and life-saving assistance as

well as prevention and

reduction of violence and

conflict.

Priority Areas

1. Protection and delivery of

essential services to people

affected by conflict

2. Promotion and compliance

with IHL

3. Synergies between

humanitarian and development

efforts (HDP-nexus)

4. Climate and conflict

5. Enhance organisational

efficiency and effectiveness of the

ICRC

Established

President

Human Resources

Country presence

Core information

1863

Geneva

Mirjana Spoljaric Egger

16.500 staff

Over 90 countries

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

___________________________________________________________________________

Organisation Strategy for Denmark’s Engagement with the

International Committee of the Red Cross (ICRC)

2025 – 2028

___________________________________________________________________________

November 2024

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

I. Objective

This Strategy for the Cooperation between Denmark and the International Committee of the

Red Cross (ICRC) forms the basis for the Danish contribution to ICRC, and it is the central

basis for Denmark’s dialogue and partnership with ICRC for 2025-2028. It sets up Danish

priority areas for ICRC’s performance within the overall framework established by ICRC’s own

institutional strategy 2024-2027 (see text box 5). In addition, it outlines specific goals and

results that Denmark will pursue in its cooperation with the ICRC. The strategy will be

supplemented by a Multilateral Partnership Agreement for the period 2025-2028 between

Denmark and ICRC. The timeframe of the strategy is set to end one year after the current

ICRC strategy with the aim to ensure alignment with a new ICRC strategy. The direction and

content of the Strategy is informed by Denmark’s Strategy for Development Cooperation, “The

World We Share”, and the associated how-to-

Text box 1:

notes, especially the note on “Denmark as a

Priority areas for Denmark’s

Humanitarian Actor”, as well as ICRC’s

cooperation with ICRC:

“Institutional Strategy 2024-2027” published in

1. Protection and delivery of essential

December 2023.

services to people affected by

conflict

The strategy contributes to reaching some of

2. Promotion and compliance with IHL

Denmark’s key objectives set out in the overall

3. Synergies between humanitarian

Danish strategy “The World We Share”, including

and development

protection of the most vulnerable, effective access

efforts/Sustainable Humanitarian

to protection and life-saving assistance as well as

Impact (HDP-nexus)

prevention and reduction of violence and conflict.

4. Climate and conflict

Priority areas for the strategy are summarized in

5. Enhance organisational efficiency

text box 1 and explained in section IV below.

and effectiveness of the ICRC

II. The organisation

The ICRC is a neutral, impartial, and independent humanitarian organization working globally

to protect and assist the victims of armed conflict and other situations of violence. It is

mandated by the international community to be the guardian and promoter of International

Humanitarian Law (IHL). The ICRC also works on influencing behavior to prevent violations of

IHL, addressing the failure of infrastructures such as health in frontlines and other areas

heavily affected by armed conflict, delivering more sustainable solutions and supporting

affected communities in strengthening coping mechanisms. The ICRC has its headquarters in

Geneva and with offices in more than 90 countries,

Text box 2:

employing around 16,500 staff. ICRC’s five largest

operations in 2023 are listed in text box 2. An

ICRC’s five largest operations

organigram for the ICRC is presented in Annex 1.

in 2023:

The ICRC is part of the International Red Cross and

Red Crescent Movement, which also comprises 191

National Red Cross and Red Crescent Societies,

including the Danish Red Cross, and the International

Federation of Red Cross and Red Crescent Societies

(IFRC). ICRC is not a member state organisation but a

private association established under Swiss law in

Ukraine (CHF 245.5 mio.)

Afghanistan (CHF 153.5 mio.)

Syria (CHF 132.9 mio.)

Yemen (CHF 113.2 mio.)

South Sudan (CHF 90.6 mio.)

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

1863. The ICRC is formally recognised in the Geneva Conventions of 1949 and their Additional

Protocols as well as in the Statutes of the International Red Cross and Red Crescent

Movement, and by the International Conferences of the Red Cross and Red Crescent.

ICRC’s mandate

ICRC’s exclusively humanitarian mission is to protect the lives and dignity of victims of armed

conflict and other situations of violence and to provide them with assistance. It also endeavors

to prevent suffering by promoting and strengthening IHL and universal humanitarian

principles.

Furthermore, in armed conflicts and other situations of violence, the ICRC acts as a co-

convener with the national society to organize the humanitarian response, including from other

Red Cross and Red Crescent Movement partners.

As per its mandate enshrined in international law, the role of ICRC is to act in the event of

international armed conflict. In international and non-international armed conflicts, IHL gives

the ICRC - like other impartial humanitarian organisations - a right of humanitarian initiative,

which entitles it to offer its services in order to assist and protect victims in the absence of law

and rights. In addition to providing humanitarian assistance and protection in areas where

many other actors do not have access, the ICRC distinguishes itself from other humanitarian

organisations by having the right to visit prisoners of war and civilian internees as well as

carrying out family reunifications. Additionally, the ICRC is mandated to work for the faithful

application of IHL in armed conflicts and to further the understanding of IHL. The ICRC is also

part of the world’s largest humanitarian network through the Red Cross Movement.

Governance of the ICRC

The President who leads the ICRC is part of and guided by the Assembly. The Assembly is the

ICRC’s supreme governing body comprised by between 15 and 25 elected Swiss nationals. The

President, the Vice-President and the rest of the Assembly have the overall responsibility for

the organization and formulates policy, defines general objectives and strategy, and approves

the budget and accounts. The President represents the ICRC on the international scene, bears

primary responsibility for ICRC’s external relations and conducts ICRC’s humanitarian

diplomacy in close cooperation with the Director-General. The directorate is led by the

Director-General and is the ICRC’s executive body, responsible for implementing and

overseeing the institutional strategy and general objectives defined by the Assembly. It is also

responsible for managing ICRC staff and ensuring the smooth running of the organization.

The ICRC is not a member state organization but a private association under Swiss law.

Consequently, this limits Denmark’s formal influence on decision-making of the ICRC.

However, Denmark is exercising informal influence and giving recommendations through

bilateral contacts and through Denmark’s membership of ICRC’s Donor Support Group (DSG).

The DSG consists of the major donors, defined by those providing more than CHF 10 million in

annual cash contribution, which in 2024 amounted to 24 donors. Denmark participates in

regular meetings where senior representatives from the ICRC and the major donors discuss a

wide range of policy and operational issues in order to strengthen mutual understanding and

the work of ICRC. Donors are able to give guidance and influence on ICRC’s overall direction,

as for example its strategy. This was e.g. the case when donors were invited to give input to

the process of developing ICRC’s Institutional Strategy for 2024-2027. The role as chair of the

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

group rotates among the members, and is also an opportunity for agenda setting. Denmark

last held the chair in 2013, and will seek to become chair during the period of the new

strategy. As mentioned, Denmark also has a close bilateral dialogue with the ICRC on a

number of strategic priority areas at both Geneva and MFA HQ level.

Furthermore, indirect influence can also be exerted via the Danish Red Cross through which a

portion of the Danish funding the ICRC is channeled. This arrangement has helped the Danish

Red Cross obtain a privileged partnership with ICRC. The two organisations have a strategic

framework agreement (2024-2028) and enjoy a well-functioning and extensive operational

collaboration in more than 10 field operations, primarily in Africa and Asia with an important

focus on the development of sustainable national societies (Branch Development) in Africa.

This partnership is also mutually beneficial on humanitarian policy matters. Finally, it is

enabling promising private sector partnerships.

Governance and oversight of the ICRC is overseen through the three lines oversight model

defined by the Institute of Internal Auditors. This includes 1) Staff, managers, subject-matter

experts in departments, divisions, regions and delegations, 2) Ethics, Risk and Compliance

Office, and 3) Internal Audit. External auditors are included as a fourth element.

The ICRC has instituted robust systems including a fraud risk management strategy from 2023

and a dedicated fraud prevention officer in 2024. The systems for reporting has been updated

and the number of reported cases of corruption has due to this increased. There has been an

increased focus on follow-up, education and handling of cases of misuse. In 2023 the ICRC

introduced its first global strategy on prevention of sexual exploitation, abuse and harassment

(PSEAH) with focus on promotion of change in organizational culture and behavior,

mainstreaming PSEAH in operational activities and strengthening the victim centered

approach. The full roll out of this strategy is of key importance.

International Conference of the Red Cross and Red Crescent

Every fourth year the Red Cross and the Red Crescent Movement hosts the International

Conference of the Red Cross and Red Crescent. The most recent was held in October 2024 in

Geneva. The participants to the conference are all 196 States party to the Geneva Conventions

and all Movement components: ICRC, IFRC and the 191 national Red Cross and Red Crescent

Societies. A range of other humanitarian and development actors also participate as observers,

including regional and international organisations, the United Nations and several of its

specialized agencies, non-governmental organisations, academic institutions and others. As an

important global humanitarian forum, the conference aims to inspire policy debate on

humanitarian issues. The Conference adopts formal decisions (resolutions) on relevant

humanitarian topics, for instance on compliance with IHL, and pledges can be made.

ICRC’s financial resources

The ICRC exclusively depends on voluntary contributions from a variety of sources. ICRC’s

budget for 2024 amounts to CHF 2.1 billion of which CHF 244 mio. are allocated to

headquarter functions (11%) while the main part of CHF 1.9 billion (89%) is for ICRC’s field

budget. Denmark’s core contribution is allocated to the field budget except for an overhead

cost of 6,5% to the headquarter.

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

ICRC’s final budget for 2023 including budget extensions for some operations ended up at CHF

2.52 mia. while contributions amounted to CHF 2.42. The funding sources and patterns in

2023 were similar to previous years: governments and the European Commission provided

82% (CHF 1.9 billion) of all resources, while National

Text box 3:

Red Cross and Red Crescent Societies provided 2% (CHF

48 mio.), and private and public sources (incl.

Top donors in 2023 (in CHF):

supra/international organisations) amounted to 16%

1.USA – 504 mio.

(CHF 369 mio.). The top donors to the ICRC in 2023 are

2.Germany – 260 mio.

listed in text box 3. In 2023, 31% of the funds that

3.Switzerland – 220 mio.

ICRC received were un-earmarked and 10% loosely

4.European Commission – 163

earmarked. The ICRC estimates that ideally 40% of the

mio.

contributions it receives annually should be

5.UK – 148 mio.

unearmarked or loosely earmarked. This would allow the

ICRC to balance the earmarked contributions with the

evolving needs and mitigate the risk of a few contexts

becoming overfunded while other contexts are

underfunded.

- These five donors contributed to

54% of the funding

13. Denmark – 32 mio.

The ICRC experienced a challenging financial situation in 2023 due to several factors including

heavy earmarking of contributions at the beginning of the war in Ukraine, significant inflation

leading to an increase in costs across many of its major expenditure categories, a surge in

needed capacity to respond post-Covid as well as a reduction in contributions from some

traditional donors. The original budget for 2023 was at record level at an initial CHF 2.8 billion

but due to funding shortfalls at the end of 2022 it was reduced already during the first quarter

of the year to CHF 2.4 billion. ICRC was able to attain financial stability as a result of the

accompanying cost cutting measures including downsizing of certain operations and the initial

reduction of staff by approximately 1800 persons worldwide, combined with several donors

and private entities that answered the urgent appeal for extraordinary contributions. Further

positions were reduced in 2024 including reducing the number of directors with one person

leading to a total reduction of 4000 positions. The budget for 2024 was reduced to reflect the

donor landscape and implied reduced operational footprint.

III. Lessons learned, key strategic challenges and opportunities

Partner assessment

In 2022 Denmark engaged an independent consultant to carry out a Mid-Term Review of

Denmark’s organisation strategy for cooperation with the ICRC. The review found that the

strategy for Danish support to the ICRC remained relevant. The engagement aligns with

foundational Danish policy priorities on IHL and a human rights and rule-based international

order. The review found that the increasing need for principled humanitarian action

underscores the continued overall relevance of Denmark’s support and partnership with the

ICRC.

The review also found an overall satisfactory progress for the ICRC, although a slow advance

towards sustainable humanitarian impact (nexus). The ICRC budget implementation rates were

found to be high (92, 87 and 84 % in 2019, 2020 and 2021). The numbers have since

increased to 98 and 89 % in 2022 and 2023, and is expected to be 88 % for 2024.

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

The review pointed out that the ICRC’s establishment of an Evaluation Office in 2021 to pursue

organisational change processes to achieve the set objectives would help further evidence-

based decision-making and humanitarian action in line with an outcome-based approach to

programming.

ICRC has so far never been assessed by the Multilateral Organization Performance Assessment

Network (MOPAN), but has now – after pressure from Denmark and like-minded countries -

agreed to have an assessment. This is expected to take place in 2026, halfway through ICRC’s

current strategy.

Denmark has overall been satisfied with ICRC’s achievements and continues to appreciate its

added value in the humanitarian response by providing protection and assistance to victims of

armed conflict as well as promoting and strengthening IHL and universal humanitarian

principles.

Lessons learned

Denmark has a long-standing relationship with the ICRC, dating back to Denmark’s signing of

the 1949 Geneva Conventions and the membership of the Donor Support Group since its

establishment in 1998. The objectives of the previous strategy between Denmark and the

ICRC, which covered the period 2019-2024, focused on 1) protection, humanitarian assistance

and compliance with IHL, 2) leveraging synergies between humanitarian and development

efforts, 3) coherence in the areas of stabilisation and security, and 4) technological

transformation and increased effectiveness. With

Text box 4:

regards to protection, assistance and IHL, ICRC has

over the last years pursued its role as guardian of IHL

ICRC selected outcomes 2023:

in armed conflicts, protection of family links and visits

to detentions, contact with armed groups (in 2023

124,387 Red Cross Messages

61% of the 450 groups) as well as supported health

collected

and income support activities. Selected outcomes of

816 people reunited with their

ICRC activities are listed in text box 4.

families

ICRC activities also contributed to 36 state ratification

of or accession to IHL treaties in 2023, to humanitarian

exceptions for UN sanctions (UNSC resolution 2664) as

well as to the political declaration on Explosive

Weapons in Populated Areas in 2022. ICRC also

progressed in leveraging synergies between

humanitarian and development efforts (nexus),

although this was slower than anticipated and was

impacted by the financial situation. The ICRC and IFRC

in 2021 formulated the Climate and Environment

Charter for Humanitarian Organizations which is aimed

at guiding the humanitarian sector’s approach to the

increasing risks resulting from climate change and to

address its own carbon and environmental footprint,

and has reached 445 signatories from humanitarian

organisations including Red Cross and Red Crescent

National Societies, and 13 State supporters.

39,762 new tracing requests

1,396 unaccompanied minors and

separated children reunited with

their families

885 places of detention holding

837,000 people visited

22,624 detainees visited

individually

2.6 mio. people benefitted from

food consumption

3.2 mio. people benefitted from

income support

679 health centres supported

734 hospitals supported

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

ICRC has during the recent years progressed in working with other actors to enhance the

impact of their operations, including with the rest of the Red Cross Movement and other local

actors, the UN, and the international finance institutions (IFIs) including the World Bank, and

through these increased efforts on stabilization and security. Technological transformation in

the form of cybersecurity and data protection has been a priority for the ICRC since a major

data breach in 2022, including establishment in 2022 of an office for cyberspace where digital

services can be tested as well as engagement with stakeholders on new technologies in

warfare.

In addition to maintaining priorities from the previous Danish strategy on protection and

assistance, IHL and synergies between humanitarian and development efforts, the 2025-28

Strategy will add a priority on climate and conflict as well as a priority on enhancing

organisational efficiency and effectiveness of the ICRC.

Key strengths

The ICRC has a leading normative role with regard to IHL. This includes monitoring the

changing nature of armed conflict and organising consultations with a view to reaching

agreement on new use of the normative rules such as the Geneva Conventions of 1949 (and

their Additional Protocols) which remain the most widely-ratified treaties to this day.

The ICRC uses its unique position and mandate to effectively operate in situations of conflict. It

engages in direct and confidential dialogue with state and non-state actors and through this,

the ICRC is often the only humanitarian organisation able to access vulnerable populations.

This is the case both for acute humanitarian response, where it operates simultaneously to

meet immediate needs and for protracted crises where the ICRC mitigates longer-term impacts

of conflict on critical infrastructure such as health and water. The ICRC has field presence in

many key conflict contexts of specific interest to Denmark: Ukraine, Syria, Yemen,

Afghanistan, Ethiopia, Somalia, DRC, and Israel and the occupied Palestinian territory.

Therefore, the ICRC will also be a critical partner to Denmark during the membership of the UN

Security Council 2025-2026, where access to timely, independent and trustworthy information

from conflict zones will strengthen Denmark’s engagement in the Council.

The ICRC fulfills its obligations as a humanitarian actor. The ICRC’s approach to humanitarian

action guided by the principles of neutrality, impartiality and independence plays a vital role in

ensuring that people affected by armed conflict can be accessed and protected. By adhering to

the humanitarian principles, the ICRC helps ensure the preservation of humanitarian space

which other humanitarian organisations also benefit from. The ICRC takes a people-centered

approach ensuring that it is accountable to affected populations.

Challenges

The funding outlook, and in particular flexible core funding, is challenging the realization of the

ICRC’s strategic goals. As mentioned, the ICRC responded in 2023 to financial challenges by

two parallel measures: a response plan to mitigate the financial situation and accelerating a

new institutional strategy with an increased focus on strengthening of the protection activities

and raising awareness of obligations under IHL. The new Institutional Strategy 2024-2027

(December 2023) reflects well the challenges of today with an increased multipolar,

fragmented and divided world. The institutional strategy was developed through an extensive

consultation process involving various stakeholders including States parties to the Geneva

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

Conventions, multilateral institutions, donors, UN partners, international governmental and

non-governmental organisations, National Red Cross and Red Crescent Societies, the

International Federation of Red Cross and Red Crescent Societies, academic institutions, think

tanks and ICRC staff. As part of responding to the financial situation, the ICRC in 2024

strengthened its financial management by organisational changes including upgrading the

Chief Financial Officer at director level, and reducing the number of directors by one person.

In addition to the financial challenges in 2023, the ICRC has the last few years been exposed

to challenges during the covid-19 pandemic, a cyber attack on the Central Tracing Agency, and

an increase in misinformation, disinformation and hate speech questioning ICRC’s impartiality,

especially related to the conflict in Ukraine and in occupied Palestinian territory. The ICRC

office for cyberspace in Luxembourg focuses on digital technologies and how they can be

harnessed to effectively and securely serve people affected by conflict, including safe

development and testing of new digital tools as well as digital solutions to protect humanitarian

organisations.

Staff morale and wellbeing has also been a challenge. The 2023 review of the ICRC’s strategy

showed that the downsizing of the organization has had a negative impact on overall staff

satisfaction, and an unsatisfactory result with regard to ICRC’s orientation on Creating an

Inclusive and Diverse Environment.

The financial situation also meant that ICRC was not able to deliver on its ambitious goals

related to investments in evaluations in 2023. Evaluations and follow-up are important for

Denmark, also in time of crisis, and Denmark will continue to work for ICRC to strengthen this

area.

Opportunities

It is paramount for ICRC’s ability to deliver on its mandate that its unique character is

preserved, especially its independence. The ICRC has over the last years increased its

coordination and collaboration with the larger humanitarian and development community,

especially in protracted situations. However, the ICRC is still able to draw a line in this respect

and maintain its independence when needed to avoid politicisation of its work. Denmark

supports the ICRC’s increased coordination with other humanitarian actors including the

partners in the Red Cross Movement and local actors. The ICRC has a standing invitation to

participate as an observer in the IASC, the inter-agency forum for coordination, policy

development and decision-making for humanitarian partners. It engages regularly as an

observer to ensure that the positions, plans and initiatives of peer humanitarian agencies are

factored into ICRC’s engagement. Also, there is regular bilateral engagement with key UN

agencies on specific crises and thematics. ICRC’s presence in fragile contexts combined with its

unique role in relation to the development of and compliance with IHL is of value to the Danish

Ministry of Foreign Affairs and to the Danish Ministry of Defence, both of which have ongoing

dialogue with ICRC, supported by the Danish Red Cross. This makes continued support to the

ICRC highly relevant.

There is a general impression among donors that the ICRC has been communicating with

donors about the challenges it has faced in a timely and open manner, and also has responded

with appropriate measures. The ICRC has introduced a new approach to monitor the

institutional risks and the funding outlook in real time which makes the organisation more agile

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

in acting on risks. Denmark has emphasized to the ICRC that communication plays a crucial

role in reducing risks as well as advocating for the organisation’s mission. The ICRC has

included communication as a cross-cutting approach in their new institutional strategy.

IV. Priority areas and results to be achieved

With its new Institutional Strategy (2024-2027) the ICRC renews its commitment to preserve

the health and dignity of individuals affected by armed conflicts and other situations of

violence. The ICRC distinguishes itself through a unique operational approach, which combines

protection and essential services

while promoting adherence to IHL.

Text box 5:

The Strategic Orientations of the

Strategic orientations of ICRC’s Institutional Strategy:

institutional strategy is listed in text

1. Upholding the centrality of protection and the role of a

box 5. The strategy prioritises the

neutral intermediary

strengthening of the ICRC’s

2. Promoting international humanitarian law as a global

protection activities and raising

political priority

awareness of obligations under

3. Enhancing the response impact in acute and protracted

international humanitarian laws

phases of conflicts, as well as other situations of

among States and non-state armed

violence

4. Affirming ICRC’s identity within the International Red

groups. This matches well with

Cross and Red Crescent Movement

Danish priorities in the Danish

5. A new humanitarianism for a changing world

development strategy in relation to

6. Optimizing risk management and financial stability

prevent and fight poverty and

7. Accelerating the digital transformation

inequality, conflict and

8. Enhancing skills, trust, cohesion and responsibility

displacement, irregular migration

and fragility.

The ICRC’s priorities are to a large extent in line with Danish priorities for humanitarian and

development assistance. The Danish cooperation with the ICRC will contribute to the

achievement of Agenda 2030’s commitment to good health and well-being (SDG3), gender

equality (SDG5), clean water and sanitation (SDG6), peace, justice and strong institutions

(SDG16).

Denmark fully supports the ICRC Institutional Strategy 2024-2027. The following five priority

areas have been defined for Denmark’s partnership and dialogue with the ICRC. The

monitoring framework in annex 2 provides an overview of related ICRC priorities and

indicators.

Priority area 1: Protection and delivery of essential services to people affected by conflict

Protection of people affected by armed conflict is a core function of the ICRC. ICRC’s protection

activities aim at reducing risks and vulnerabilities, and to uphold the rights of civilians,

prisoners of war, detainees, missing persons, the wounded and sick, victims of sexual violence

and other affected people. These efforts are complemented by the delivery of humanitarian

aid, support to essential services and prevention activities.

This priority area aligns with the implementation of the Danish priority regarding protecting

victims of armed conflict and delivering humanitarian assistance to vulnerable affected

populations, including in some of the least accessible areas in various conflicts. As the ICRC

often is the only actor with access, it is of particular importance to Denmark that the ICRC

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prioritises resources to its protection activities. The ICRC’s protection and assistance response

includes a focus on the specific vulnerabilities of women and girls and on addressing

prevention and needs resulting from sexual and gender-based violence. Furthermore, the ICRC

is an important health actor, and Denmark particularly appreciates its work on building

stronger health systems in conflict areas, including addressing non-communicable diseases and

its investments in mental health and psychosocial support.

Conflict dynamics are becoming more complex and respect for the neutrality of humanitarian

actors is increasingly challenged. The increased need for a principled humanitarian approach

underscores ICRC’s relevance. The ICRC contributes to upholding the neutrality and the

protection of humanitarian actors and access to affected populations through protection

dialogue with the parties to a conflict. The ICRC’s role as a neutral intermediary contributes to

humanitarian considerations in negotiations and attempts at resolving disputes between the

parties.

Denmark is committed to support the ICRC through humanitarian diplomacy where

useful, and in full respect of their neutral role. Both the focus on vulnerabilities of

women and girls and on health are in line with core Danish priorities, and Denmark

will work to support the ICRC in efficiently carry out its mandate to protect civilians

in armed conflict. The ICRC’s responses align well with the Danish priorities in the

Security Council: 1) Adapting conflict responses and prevention, 2) Climate and

Security and 3) Women, Peace & Security.

Priority area 2: Promotion and compliance with IHL

The ICRC is the guardian and promoter of IHL and interacts with states parties to the Geneva

Conventions as well as with non-state armed groups. The ICRC is promoting IHL as a global

political priority. In post-conflict phases the ICRC’s responsibilities under IHL includes secure

release of prisoners of war and to visit detainees, search for missing persons, ensure proper

management of the dead, strengthen resilience of displaced people and address the issue of

weapon contamination. As the ICRC, for some of these activities, is the only actor able to act,

it is important to Denmark that these activities are at the core of the ICRC.

ICRC’s communication on the importance of IHL supports its operational efforts in prevention,

protection and assistance. In conjunction with humanitarian diplomacy and policy dialogue,

communication plays a crucial role in advocating for the organization’s mission, and for

humanitarian access to people in need. Communication is important in managing security and

perception challenges for the ICRC and emphasizes the respect for the ICRC’s neutrality.

Especially, misinformation, disinformation and hate speech can have damaging effect on

ICRC’s possibilities for fulfilling its mandate.

Denmark will continue to work with the ICRC to ensure that there is respect for its

neutral and impartial humanitarian role and for the Red Cross emblem and is

committed to support where it is helpful on policy level through humanitarian

diplomacy. ICRC’s principled humanitarian approach is in line with Denmark’s

adherence to the humanitarian principles. As a member of the Security Council 2025-

2026, Denmark will work consistently across the range of issues on the Security

Council agenda to defend international law, including international humanitarian law

and human rights law.

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

Priority area 3: Synergies between humanitarian and development efforts/Sustainable

Humanitarian Impact (HDP-nexus)

Under ICRC’s new Institutional Strategy for 2024-2027 the ICRC will enhance the response

impact in acute and protracted phases of conflicts, taking into account the vulnerabilities and

abilities of the affected people, and the capabilities of local and international actors. In long-

standing conflicts the ICRC focuses on sustainable impact and in addition to humanitarian aid

also supports institutions in sectors such as health, food production, water, detention and legal

issues. Promotion of sustainable solutions is key for Denmark’s development and humanitarian

approach, and ICRC’s response contributes to the Danish priority of lifesaving humanitarian

response including health.

The ICRC focuses on building resilience, more systematic responses and more sustainable

humanitarian interventions (HDP-nexus). Reflections on when other actors can take over

engagement from the ICRC and ensure hand-over strategies for its operations are important to

ensure an efficient response. The Red Cross and Red Crescent National Societies and other

local actors play an important role in a localised sustainable humanitarian response, as well as

in the hand-over from the ICRC to other actors.

Denmark will support ICRC’s ongoing constructive engagement with major

development actors. Denmark has a particular interest in enabling strong

collaboration between the ICRC and major actors such as the World Bank and the

European Commission. Denmark will encourage the ICRC to maintain effective

humanitarian aid and build sustainability and resilience in the most difficult contexts,

in particular where access is limited for other humanitarian actors. Denmark

considers localisation as part of a sustainable humanitarian impact and will support

the ICRC’s efforts to strengthen local partnerships including the Red Cross and Red

Crescent National Societies’ capabilities and support in delivering principled and

relevant responses to achieve greater and sustainable humanitarian impact (HDP-

nexus).

Priority area 4: Climate and conflict

Climate change exacerbates resource scarcity which could lead to both increasing conflicts as

well as migration, and thereby placing further strains on the ICRC and the humanitarian

system in general.

Countries in conflict are at the top of climate vulnerability charts

. Conflicts harm the

foundations of societies, which in turn limits people’s capacity to adapt to a changing climate:

conflicts weaken institutions and essential services, disrupt the economy, undermine social

cohesion and damage the environment on which people rely to survive. This hinders climate

adaptation and makes people extremely vulnerable to all types of risks, including climate ones.

The countries where the ICRC has the largest operations (such as Afghanistan, Yemen, and

South Sudan) are all charaterised by high vulnerability and generally also have the lowest

capacity for responding to climate-induced loss and damage.

ND-GAIN Index (Vulnerability

measures a country's exposure, sensitivity and ability to adapt to the negative impact of climate

change):

Vulnerability rankings | ND-GAIN Index

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

In ”The World we share” preventing and fighting conflict and leading the fight to stop climate

change are two central priorities. The ICRC works actively to address the humanitarian impact

of climate change in conflict contexts and to ensure that climate action also benefits people

living in conflict areas. The ICRC supports conflict-affected communities in adapting to climate

change. The ICRC has facilitated exchange among state experts on how to overcome

challenges in protecting the environment in armed conflicts.

Denmark remains committed to actively monitor the ongoing discussions and future

advancements in tackling climate changes in the years ahead. Denmark will support

ICRC’s ongoing engagement with climate actors as United Nations Framework

Convention on Climate Change (UNFCCC) and the governing bodies of the Conference

of Parties (COP). As a supporter to the Climate and Environment Charter for

Humanitarian Organizations, Denmark will follow the ICRC’s work in this area and

will support the ICRC’s effort to integrate climate risks into its operations and in

reducing its carbon footprint.

Priority area 5: Enhance organisational efficiency and effectiveness of the ICRC

For the ICRC to deliver on its mandate, including the priority areas highlighted above, it needs

to be an efficient and effective organization. ICRC’s ambition is to achieve improvements on

e.g. communication, financial stability, accelerate the digital transformation, and to have focus

on security management and duty of care as well as evaluation, learning and innovation.

In its Institutional Strategy, the ICRC points to acceleration of the digital transformation as an

enabler for the organisation’s readiness and efficiency. The improvement of its digital

organization, processes and systems will enable the ICRC in supplementing its global physical

presence with digital means and thereby optimise the utilisation of digital assets and human

capital as well as safeguarding the data entrusted to the organization.

The ICRC has engaged in collaboration with international finance institutions (IFIs). The

partnership with the World Bank covers policy engagement, knowledge exchange and

operational collaboration. The partnership is increasingly informing the World Bank’s

positioning on how to remain engaged in contexts of fragility, conflict and violence (FCV), and

also presents an opportunity to expand ICRC’s anticipatory action through stronger analytic

capacity and supporting prevention and IHL efforts. Currently, the ICRC collaborates

operational with the World Bank in Yemen, South Sudan and Myanmar. Other partnerships

include the African Development Bank and the Islamic Development Bank.

The staff of the ICRC is often responding to complex situations, dealing with extensive human

suffering and often facing intense professional stress. This is acknowledged in the new

Institutional Strategy where staff wellbeing and cohesion is seen as an enabler to bolster the

institutional readiness. Top priority is given to field delegations and leadership fostering a

caring internal environment.

Denmark has a strong interest in strengthening the ICRC’s capacity to deliver on its

mandate, and will support the ICRC in implementing its new strategy. Denmark

expects the ICRC to be leading on innovative solutions as well as data security in the

humanitarian field, and expects the ICRC to report on efficiency gains in that regard.

The ICRC applies a zero-tolerance policy towards any cases of fraud, corruption and

other misconduct including sexual exploitation, abuse and harassment. Denmark

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

expects the ICRC to follow and implement this strictly as well as to oversee it

through its three-line oversight model defined by the Institute of Internal Auditors.

Denmark will continue to participate in the annual oversight and governance

meetings for the DSG-members and closely follow the planning and budgeting of the

ICRC. Denmark also expects the ICRC to fulfill their duty of care to their staff.

Cross cutting priorities: Gender and diversity

ICRC’s Institutional Strategy recognizes that gender and all diversity factors shape

humanitarian needs and people’s access to its services. The ICRC has an institutional

framework for Accountability to Affected People (AAP) which includes guiding principles on

taking diversity factors into account including gender, age and disability. The ICRC aims to

apply a gender and diversity lens to its operations through the AAP guiding principles. The

ICRC annual planning process includes instructions for their delegations to conduct social

context analyses, with a particular focus on gender, age, and disability factors and how these

affect lived experiences and needs. These are used to inform the planning and design of ICRC’s

interventions.

Denmark will continue to support and promote ICRC’s engagement in this area. In

line with Denmark’s strategies and priorities, the ICRC enhances its internal capacity

to analyse, innovate and respond to diversity-related concerns by incorporating a

gender perspective and promoting inclusive humanitarian action.

V. Budget

Denmark plans to continue to support the ICRC with multi-year core funding to enable the

organisation to deliver on Danish priorities, as well as to give it flexibility to act where needed

in accordance with its mandate. Denmark plans to support ICRC’s field budget of CHF 1.9

billion (app. DKK 14.31 billion) with DKK 85 million per year.

Indicative budget for Denmark’s core contributions to ICRC 2025-2028*)

Funding as per the Danish Finance Act for

2024 (DKK million)

Core funding

Total

*) Subject to annual parliamentary approval

Finance act

code

06.39.01.14

Planned

2025

Planned

2026

Planned

2027

Planned

2028

In addition to the annual core contribution to ICRC, which is the focus of this strategy,

Denmark provides funding to the ICRC through two additional channels. One is through a set

annual contribution channeled through the Danish Red Cross to the ICRC country appeals (DKK

40 million). The other is by contributing to extraordinary humanitarian country appeals, which

is also channelled through the Danish Red Cross (DKK 138 million in 2023). While the

organisational responsibility and the un-earmarked contribution lies with the UN Mission in

Geneva, and the responsibility for the earmarked contribution lies with the Department of

Humanitarian Action, Civil Society and Engagement, the two departments cooperate closely on

both implementation and monitoring.

All funding is subject to annual parliamentary approval.

VI. Risks and assumptions

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

The ICRC works in complex and conflict-related areas which can pose reputational risks to the

ICRC’s neutrality and independence. The ICRC will always in all contexts need to uphold

humanitarian neutrality to have access to people in need and adhere its role through the

fundamental principles of humanity, impartiality, neutrality and independence. Recent

examples have shown that disinformation, hate speech and public opinion multiplied by social

media poses an increased risk to the humanitarian neutrality of the ICRC and to the staff in the

field that will need to be addressed, including through the communication strategy.

The growing gap between humanitarian needs and the humanitarian financing available poses

a risk to the ICRC and its ability to deliver on its mandate. There is a concern that the growing

financial gap between well-funded large operations and underfunded contexts continues to

expand, threatening ICRC’s ability to remain needs-driven and hampering its operational

capacity. The ICRC has given high attention to this issue including appointing a Chief Financial

Officer at director level in 2024. The ICRC is itself acutely aware of the need to broaden the

donorbase, and is reaching out to potential new donors including IFIs. It is also in contact with

development agencies and climate actors to ensure that financing is used most effectively; and

that funding and action is coordinated and applied in the most effective way to the benefit of

those affected by multi-faceted crises.

VII. Danish approach to engagement with the organization

Based on the priority areas specified above, Denmark will continue to pursue an open and

constructive dialogue with the ICRC across the organization to influence and follow up on the

organization’s work towards realizing these priorities. The Danish multilateral contact group for

the ICRC was involved in the making of this strategy and will continue to serve as a platform

for facilitating information sharing, identification of issues and coordination of joint messaging

to the ICRC. After approval of this strategy it will be circulated to relevant Danish embassies.

The ICRC reports on their activities in their public annual report, and Denmark does not

demand separate reporting for the core contribution. The UN mission in Geneva and the

Department of Humanitarian Action, Civil Society and Engagement will continue to organise

annual consultations between Denmark and the ICRC where the Danish priorities are

discussed.

Denmark will also continue its active participation in the ICRC Donor Support Group (DSG). A

wide range of issues are examined and discussed in this group, including thematic and policy

issues, operational realities, staff well-being and management, reporting on progress on the

implementation of the strategy, and topics related to finance and reporting. A new cycle with a

new co-chair starts every year in June. As part of this group, Denmark will take part in the two

annual policy fora (February and October), briefings, the annual meeting with the ICRC

directors (June) as well as the annual oversight and governance meeting (May), see annex 3.

During Denmark’s membership of the Security Council and during the presidency of the EU,

closer dialogue is envisioned. The ICRC has a team in New York which can be engaged by

elected members of the Security Council.

Although not mandatory, it could be considered to carry out a Danish mid-term review to

assess the continued relevance of the Danish organisation strategy, the overall progress on

key indicators, and of the cooperation between Denmark and the ICRC.

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

ANNEX 1: ICRC Organisation Chart

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

ANNEX 2: Danish priorities and monitoring framework

Annex 2 provides an overview of priority areas for this Organisation Strategy and related ICRC

Strategic Orientations, key initiatives and Strategy-level Key Performance Indicators.

Danish Priority Area 1: Protection and delivery of essential services to people affected by

conflict

ICRC Strategic Orientation ICRC Key Initiatives

Strategy-level KPIs

Upholding the centrality of

Strengthen protection

The extent to which people

protection and the role of a

dialogue and activities (1)

affected by armed conflict

neutral intermediary (SO1)

and other situations of

Review and shape the future

violence access relevant and

approach to the ICRC’s

impactful protection and

neutral intermediary role (3)

assistance (KPI1)

Enhancing the response

Deliver updated modalities

The extent to which the ICRC

impact in acute and

for fast, effective emergency

can access people in places

protracted phases of

response to operational

affected by armed conflict or

conflicts, as well as other

crises (8)

other situations of violence

situations of violence (SO3)

(KPI3)

Danish Priority area 2: Promotion and compliance with IHL

ICRC Strategic Orientation ICRC Key Initiatives

Promoting IHL as a global

Establish IHL as a common

political priority (SO2)

good for humanity and re-

assert its continued

relevance (4)

Strengthen the capacity and

commitment of States and

non-state armed groups and

other relevant actors to

uphold their legal obligations

and promote good practices

(5)

Strategy-level KPIs

The level of recognition of

the ICRC’s position on key

subject matters, such as the

protection of civilians and

individuals hors de combat,

and the rights of detainees,

missing persons and other

affected people (KPI2)

The extent to which the ICRC

can access people in places

affected by armed conflict or

other situations of violence

(KPI3)

Danish Priority area 3: Synergies between humanitarian and development

efforts/Sustainable Humanitarian Impact

ICRC Strategic Orientation ICRC Key Initiatives

Strategy-level KPIs

Enhancing the response

Deliver updated modalities

The extent to which the ICRC

impact in acute and

for fast, effective emergency

can access people in places

protracted phases of

response to operational

affected by armed conflict or

conflicts, as well as other

crises (8)

other situations of violence

situations of violence (SO3)

(KPI3)

Enhance ICRC preparedness

for operational response to

The effectiveness of the

large-scale conflicts,

ICRC’s coordination with

including in partnership with

Movement partners (KPI4)

the Movement (9)

Roll-out of revised palette of

services (10)

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

Priority area 4: Climate and conflict

ICRC Strategic Orientation ICRC Key Initiatives

Enhancing the response

Strengthening preparedness

impact in acute and

and emergency response

protracted phases of

capacity, rolling out revised

conflicts, as well as other

palette of services (8,9,10)

situations of violence (SO3)

Strategy-level KPIs

The extent to which people

affected by armed conflict

and other situations of

violence access relevant and

impactful protection and

assistance (KPI1)

Priority area 5: Enhance organizational efficiency and effectiveness of the ICRC

ICRC Strategic Orientation ICRC Key Initiatives

Strategy-level KPIs

Optimizing risk management

Enhance steering, oversight

The level of financial stability

and financial stability (SO6)

of risk, compliance and

with the organization (KPI6)

financial management to

support operational agility

and management decision-

making (16)

Empower managers and staff

to act and take risk-informed

and financially responsible

decisions (17)

Strengthen financial

resilience through an

optimized financial

architecture and resource

mobilization approaches (18)

Deploy front-end digital

capabilities, digital initiatives

in support of a new ICRC

organizational model (19)

Cyber security

transformation and data

protection (21)

Accelerating the digital

transformation (SO7)

The extent to which people

affected by armed conflict

and other situations of

violence access relevant and

impactful protection and

assistance (KPI1)

The extent to which the ICRC

can access people in places

affected by armed conflict or

other situations of violence

(KPI3)

The level of motivation,

internal cohesion and trust

among staff (KPI5)

Enhancing skills, trust,

cohesion and responsibility

(SO8)

Recruitment, integration and

learning journey is re-

designed in line with new

strategy and ICRC’s needs

for generalist / management

training are met (26)

Actions to enhancing

diversity and inclusion inside

the ICRC (27)

URU, Alm.del - 2024-25 - Bilag 182: Orientering om nye danske organisationsstrategier for ICRC, WHO, UNAIDS og OHCHR, fra udenrigsministeren

ANNEX 3: Annual wheel

ICRC

Quarter 1



DSG policy forum

(February)

DSG field trip (March)



GVAMIS

Participation in policy forum

(February)

To the extent possible

participation in field trip,

alternating with HUMCIV

(March)

Annual consultation (March)

Participation in Governance

and Oversight meeting (May)

Participation in annual meeting

(June)



Quarter 2



Quarter 3



Governance and Oversight

meeting (May)

ICRC annual report (June)

DSG annual meeting

(June)

DSG policy forum

(September/October)



Quarter 4



Annual meeting with

Heads of Delegations

DSG field trip (November)

Launch of annual appeal

(November/December)



Preparation of Annual Stock

Taking Report for the preceding

year based on the latest ICRC

information (July/August)

Preparation of a draft Annual

Action plan

(July/August)

Participation in policy forum

To the extent possible

participation in field trip,

Alternating with HUMCIV

(November)

Participation in the annual

appeal (November/December)



During Denmark’s membership of the United Nations Security Council 2025-2026 there will be

ad hoc contact between Denmark and the ICRC office in New York. This will typically be

initiated by MFA Copenhagen or the Permanent Mission of Denmark in New York.