UNHCR: EXCOM CABLE #3: IDP OVERVIEW

UNCLAS SECTION 01 OF 02 GENEVA 002494

SIPDIS

USEU FOR MEZNAR, USUN FOR MALY

E.O. 12958: N/A
TAGS: PREF UNHCR
SUBJECT: UNHCR: EXCOM CABLE #3: IDP OVERVIEW


1.(U) Summary. The invigorated UN Collaborative Approach to
Internally Displaced Persons (IDPs) and UNHCR,s enhanced
role in the new approach were of key interest during UNHCR,s
Executive Committee (EXCOM) meetings the week of October 3-7.
A panel discussion devoted to the issue took place on
October 3, and the proposal to designate UNHCR the "cluster
lead" on protection, camp management and coordination, and
emergency shelter was addressed by EXCOM special guest SYG
Kofi Annan, UN ERC Jan Egeland, High Commissioner Guterres,
and many EXCOM delegations. EXCOM delegations generally
recognized the need to better address IDP situations, and
expressed appreciation for efforts made to bring greater
clarity to the UN response to IDPs. Delegations appears
prepared for UNHCR to take on the three cluster leads, though
many questions remain that need to be addressed as the
process moves forward. End Summary.

2.(U) Members of the UN Interagency Agency Standing Committee
(IASC) have been working on strengthening the UN response to
internally displaced persons (IDPs),and have settled on an
approach where a certain UN agency will take the lead in each
of eight sectors where particular gaps exist. Further
details of the plan are being worked out in the IASC; in the
mean time though UNHCR has begun engaging EXCOM members on
its proposed new role. Among other things, the plan calls
for UNHCR to take the lead in three sectors: protection, camp
management and coordination, and emergency shelter. As part
of UNHCR,s efforts to engage its Executive Committee on the
issue, a panel discussion on the topic was held October 3.
Panel participants included UN Emergency Relief Coordinator
(ERC) Jan Egeland; UN High Commissioner for Refugees Antonio
Guterres; and DRC Minister of Interior, Decentralization, and
Security, Mr. Mbemba Fundu.

3.(U) In his presentation, Egeland laid out three goals of
the invigorated Collaborative Approach: 1) strengthening
response capacity at the local, national and international
level; 2) making funding more predictable; and 3) improving
coordination. Being a sector lead, said Egeland, means
"coordinating with others" (not "coordinating others"),
building local and national capacities so they can carry out
the majority of the IDP work, assessing the level of sector
response, providing assistance, and serving as a provider of
"last resort". Without offering specifics, he asserted that
the new approach would be more cost effective.

4.(U) The IASC, which meets again on December 12, will decide
initially on two or three pilot countries. (Note: USDel
learned subsequently that the DRC, Liberia, and northern
Uganda were being considered for the pilot countries.) The
new program and revised UN Central Emergency Response Fund
(CERF) could then be launched on January 1. To assist IDPs
"we absolutely must have additional resources, otherwise it
won,t happen", said Egeland. His goal is to get $500
million committed to the CERF to be used as grants and loans.
He indicated that the UK, Sweden, Switzerland, the
Netherlands, and Norway have committed to support the CERF,
and that some $170 million had already been pledged towards
this effort.

5.(U) "UNHCR is one of the key partners in the approach",
said Egeland, and "the Red Cross has a role too." He added
that the entire international community has a responsibility
to speak up regarding IDP situations, that stronger political
support should accompany humanitarian efforts, and that
solutions to the root causes of displacement need to be
found. Egeland urged those present to help ensure the
invigorated Collaborative Approach gets off to a strong start.

6.(U) UNHCR,s High Commissioner Antonio Guterres said UNHCR
must be a predictable partner on IDPs, while acknowledging
that being a sector lead did not mean covering all needs
within that sector, but rather working to ensure they are met
by some entity. UNHCR,s increased involvement would not
result in staff increases in headquarters, but could in the
field. OCHA,s PROCAP proposal could be tapped by UNHCR to
identify short-term, mid-level protection staff.

7.(U) DRC Minister Fundu said his country would serve as an
ideal pilot. The IASC has yet to decide on pilot countries,
but Egeland acknowledged the DRC is a good candidate.
Ugandan Minister Ali made a pitch to serve as a pilot as
well. Guterres opined that emergencies that are not working
well should be selected as pilots.

8.(U) Delegations expressed appreciation to the ERC, the
OCHA/IDD unit, and the IASC for their efforts in bringing
renewed energy to addressing the needs of IDPs, whom many
acknowledged are among the most vulnerable people in the
world. EXCOM members generally supported UNHCR,s role as
sector lead for protection, camp management coordination, and
emergency shelter.

9.(U) Despite general support from EXCOM members, some
delegations continue to have considerable questions.
Australia, USDel, and others noted concerned about financial
and human resource implications. Australia warned against
excessive emphasis on the CERF, vice other possible funding
mechanisms. Guterres said UNHCR,s increased involvement in
IDPs would not lead to a bifurcated organization, nor
undermine its "sacred" refugee work. Various countries,
particularly those with IDP populations, said the UN should
only assist IDPs when governments invite the UN in. The UK
was notably positive about the new proposal, calling for
rapid implementation. Guterres committed to ongoing dialogue
with EXCOM on the issue.
10.(U) In a statement delivered to EXCOM by SYG Kofi Annan on
October 6, Annan highlighted "accomplishments" of the
September UNGA high-level event, including progress made to
better address the needs of IDPs. He committed to completing
the reinvigoration of the Collaborative Approach. Annan
noted the important role UNHCR will play in this and the
support expressed during the high-level event for the revised
CERF. He said pledges to date exceeded $150 million, which
did not necessarily contradict the figure provided by Egeland
earlier in the week. Annan touted the establishment of the
Peace Building Commission as well, saying its goal is to help
ensure that peace takes lasting hold in countries emerging
from conflict. The Commission will help protect against
genocide, and crimes against humanity. Annan noted that
returning refugees have a role in advancing peace and
stability, as does UNHCR.

11.(U) Comment. In the General Conclusion on International
Protection, EXCOM members took note of the IASC deliberations
and encouraged UNHCR to continue to explore the feasibility
of taking on some coordination responsibilities. However,
they did not give the explicit endorsement of the process or
UNHCR's lead for which some in the UN were hoping. USDel's
discussions with various UNHCR officials reveal continued
confusion about what exactly taking on these sector leads
means, where and when this will be implemented, and how the
organization will resource these new activities. There is
not much time before the IASC's December meeting during which
these sector leads are meant to be finalized. It seems clear
that UNHCR believes it has sufficient support to initiate at
least pilot leads. The U.S. must continue to stress that the
collaborative approach failed because important issues about
funding, resources, priorities, and accountability were never
resolved. Unless these same issues are addressed before the
cluster leads are launched, the "new" approach is likely to
face the same old problems. End Comment.
Cassel