Humanitarian funding review recommendations: Scottish Government response

Response to the recommendations made by the review

Recommendation 1: Review the Scottish Government’s level of humanitarian funding with a view to increasing the proportion of the International Development budget spend on humanitarian response to at least 20% of ODA.

The Review notes that the current £1 million per annum baseline budgeted spend for humanitarian funding is a relatively low percentage of overall Scottish Government ODA in comparison with other donors, particularly smaller donors which tend to commit higher percentages of their assistance to humanitarian aid. The Review recommends that the Scottish Government review the level of humanitarian funding provided with a view to increasing to 20% the proportion of its ODA spend on humanitarian response. This recommendation is grounded in the increasing humanitarian funding needs globally and the Scottish Government’s ambition to support system change in the sector and influence others.

We note that while the baseline budget for the HEF is currently £1 million per annum, the actual spend on humanitarian response has been higher in recent years when taking into account additional funding delivered outside of the HEF. Over the past three financial years, the percentage of our overall international development and climate change budgets provided to humanitarian response has ranged from approximately 10.5 % (2024-2025) to 13% (2023-2024), noting also that elements of these budgets are not spent as ODA. We note the importance of a defined budget and accept the recommendation of the report to increase the proportion of our ODA that is dedicated to humanitarian responses, but cannot confirm a percentage figure at this stage. This increase of our humanitarian budget as a proportion of our ODA spend will take place in a phased manner aligned with an overall increase in ODA budgets.

Increases in humanitarian funding will be delivered in a way that continues to support and align with our International Development Principles, our Feminist Approach to International Relations and our commitment to equalising power. It will also be delivered in a way that is transparent and maximises the impact and effectiveness of our spending.

Recommendation 2.1: Invest in pooled funds: recommendation to contribute to Disasters Emergency Committee appeals

The Disasters Emergency Committee (DEC) works through its 15 UK-based charities to respond to large-scale disasters. The Review recommends that the Scottish Government continue to support DEC appeals in response to large-scale emergencies. It recommends that this ongoing contribution would ensure that Scottish Ministers are able to assure the Scottish public and Parliament that Scottish public funds are contributing to these high-profile emergencies and UK-wide fundraising campaigns when they emerge.

Under the existing HEF mechanisms, £500,000 of Scottish Government humanitarian funding is provisionally budgeted and set aside for a response to any appeals in that financial year by the Disasters Emergency Committee, in response to large-scale, high profile crises. Under the current model, if there has been no DEC Appeal at certain points during the financial year, the funding is then made available to the HEF Panel for other humanitarian crisis responses, based on guidance from the HEF panel.

The Scottish Government values the work of the DEC and its members in mobilising funding for response to large-scale disasters and providing a coordinated response across the UK. We therefore intend to continue supporting DEC appeals as they arise and will maintain a dedicated budget within our overall budget for humanitarian response for ongoing contributions to DEC appeals. As with the current HEF model, this funding would roll over to other humanitarian funding mechanisms should a DEC appeal not take place by certain points in any financial year.

Recommendation 2.2: Invest in pooled funds: recommendation to investigate and carry out a comparative analysis on potential impacts of investing in DEC or START network on an ongoing basis with a view to making an informed decision in future on which channel best aligns with Scottish Government needs.

The Review recommends that the Scottish Government investigate and compare what the Global Start Fund and DEC would offer as a pooled fund, noting that it is likely that the Global Start Fund has stronger alignment with the shifting power south and localisation agendas. The Global Start Fund is a multi-donor pooled fund, hosted by the START Network, that provides rapid humanitarian funding to address small to medium-scale crises.

While the Scottish Government has not routinely delivered humanitarian funding through pooled funds, beyond the DEC appeals, we did so in 2025 with a grant to the UN-OCHA pooled fund for the Occupied Palestinian Territories.

Pooled funds are increasingly recognised as an effective and efficient tool for humanitarian funding and are a model that is supported by the ongoing ‘humanitarian reset’. For the Scottish Government, as a smaller donor, pooled funds are a way to expand the impact and reach of our humanitarian funding and share risk with other donors. We also note that many pooled funds are demonstrating positive impact in terms of localisation, both in terms of funding local and national NGOS and shifting power to local actors by engagement in governance processes.

It is therefore our intention that a significant amount of our humanitarian funding will in future be delivered through funding to thematic pooled funds that support our broader international development Principles, particularly in the upcoming 2026-2027 financial year.

In line with the recommendation of the Review, we are currently evaluating which pooled funds provide the best opportunities to effectively deliver humanitarian funding in line with our objectives and Principles. In March 2026 we have made an initial £200,000 contribution to the Global Start Fund. At the same time as contributing to thematic pooled funds, we also intend to continue to contribute to DEC appeals.

Recommendation 3: Launch new mechanism for humanitarian funding (“HEF 2.0”)

The Review included a thorough analysis of the current HEF mechanism and noted that the administrative burden for both the Scottish Government and panel members in operating this system is disproportionate to the level of funding provided. The Review also noted opportunities for greater flexibility in the design and delivery of humanitarian responses; for increased transparency in relation to other humanitarian funding that has not been through the HEF Panel process; and more engagement of local partners in the funding process as well as delivery.

The Scottish Government greatly appreciates the work and support of the members of the HEF Panel since 2017 in the delivery of the Humanitarian Emergency Fund. The HEF Panel has effectively advised the Scottish Government on where Scottish Government funding would have the greatest impact and have been able to respond quickly to crises, either directly or working with local partners. However, we recognise that the existing HEF Panel mechanism is cumbersome and resource intensive for both the Scottish Government and HEF Panel members and that it is a timely moment to consider options that reflect evolving good practice on humanitarianism, in terms of good donorship, localisation, impact and furthering Scottish Government international development and humanitarian objectives. Taking this into account, we intend to end the HEF mechanism in its current form at the end of this (2025-2026) financial year.

The Review considered a number of models to replace the current HEF Panel model and recommends the establishment of “HEF 2.0”, a simplified fund delivered by a third-party agent with clear funding parameters, eligibility and management. The Review recommends that this fund would be open to both current HEF Panel members and a wider pool of implementing partners, including those from the global south.

Having considered this recommendation carefully, we do not intend to take forward this approach as described in the Review. While we consider it valuable to have a direct funding model and support the objective of widening access to Scottish Government humanitarian funding, we do not consider that this would be achievable in the way described in the Review without a similar level of administration and resource to the current model. However, we intend to explore alternative options for a model of delivery of Scottish Government humanitarian funding that would complement our contribution to pooled funds and the DEC, to be implemented in the 2027-2028 financial year. This would be a model that ensures that our humanitarian funding is delivered in a way that is transparent, predictable and impactful and which furthers our international development Principles, including the intention to equalise power.

The Scottish Government also agrees with the assessment of the Review that, at this stage, our humanitarian funding should continue to focus on emergency response rather than expand to include anticipatory action and/or longer term resilience and recovery. However, other Scottish Government ODA funding streams could be used in conjunction with the rapid relief provided by humanitarian response, to address needs for longer term responses.

We will continue to engage with existing HEF Panel members and other global humanitarian stakeholders as we consider and scope the available options for developing this new mechanism.

Recommendation 4: Invest in a global south pooled fund - carry out due diligence and invest in NEAR Change fund

The Review recommends that investing in emerging global south based pooled funds would bring new opportunities to advance localisation. The NEAR Change Fund is a funding mechanism that seeks to provide quick, flexible and focused emergency response funding to community-based local organisations in 27 priority countries in the Global South

In line with our response to recommendation 2.2 above, we consider pooled funds to be an effective way to deliver our humanitarian funding. We are also mindful that that investing in emerging global south-based pooled funds would align well with our commitment on shifting / equalising power to the global south. There are a number of such pooled funds that support our international development and FAIR objectives and we will review these options with a view to investing in a humanitarian pooled fund that specifically furthers our international development Principles, including our commitments on shifting/equalising power.

Recommendation 5: establish a fully independent humanitarian advisory body

The Review recommends that the Scottish Government establish a fully independent humanitarian body that would provide unbiased, relevant advice on a fast-changing humanitarian sector.

We support the principle of having independent and expert advice on humanitarian funding and Scotland’s contribution to global humanitarian response. We intend to consider the options available for either establishing a new panel, leveraging existing Scottish Government mechanisms or engaging with existing groups that provide international expertise.

At the same time, we greatly value the contribution and expertise of humanitarian organisations present in Scotland to the delivery of humanitarian assistance, international advocacy and engagement with current efforts to reform the humanitarian system. We also consider it important to continue to support civil society efforts to raise public awareness in Scotland of humanitarian crises and of Scotland’s role as a responsible global citizen. We will therefore continue to work closely with Scottish humanitarian actors to exchange on international humanitarian responses and ongoing crises and to consider how best to engage with people in Scotland on these matters.