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Quite early on, attempts were made by the United States, WHO/HQ, and OCHA to coordinate both the humanitarian and research initiatives. One problem was a lack of clarity over the leadership of the newly independent states: the Russian Federation regarded itself as senior to the others, the accident occurred in Ukraine, and Belarus was the most affected country. The United States and WHO/HQ each claimed to have made exclusive agreements with the affected states—IPHECA to the effect that it was to be an umbrella under which all research and humanitarian activities would be coordinated, and the United States to the effect that it had priority where the conduct of research was concerned. OCHA claimed that its mandate overrode other humanitarian-linked agreements. The result was a serious lack of coordination and a fair measure of chaos on both humanitarian and research fronts.