SAHRAWIS: ANOTHER FOOD CRUNCH IN TINDOUF

UNCLAS SECTION 01 OF 02 CAIRO 004676

SIPDIS

SENSITIVE

FROM REGIONAL REFUGEE COORDINATOR
DEPT FOR PRM/AFR MARY LANGE, PRM/MCE, PRM/A WHITNEY REITZ, NEA/MAG
GENEVA FOR RMA
ROME FOR FODAG

E.O. 12958: N/A
TAGS: PREF PHUM AL EG
SUBJECT: SAHRAWIS: ANOTHER FOOD CRUNCH IN TINDOUF

References: (A) Cheyne/Lange emails; (B) 05 Cairo 07582; (C) 05
Cairo 07889


1. (U) This message has been cleared by Embassy Algiers.

--------------
Summary
--------------


2. (SBU) Cairo-based Regional Refugee Coordinator Cheyne met
separately with WFP representative Marius de Gaay Fortman, and UNHCR
Representative Peter van der Vaart, in Algiers July 27. WFP is
concerned that a break in the Tindouf food pipeline is imminent with
significant shortfalls expected for the balance of CY2006. With
little support from UNHCR, WFP is on a collision course with the
Government of Algeria over the question of camp numbers as it
attempts to negotiate a WFP/UNHCR/Red Crescent tripartite agreement
for ongoing food aid deliveries when the current Protracted Refugee
and Recovery Operation (PRRO) expires at the end of this month
(August). WFP has proposed to the GOA that the current arrangement
(with WFP supplying sufficient food for 125,000) will continue to
the end of CY2006 but unless agreement is reached on numbers WFP
will revert to 90,000 as the base figure and cut supplies
accordingly. It is unlikely the GOA and the Sahrawis will agree to
this figure. UNHCR seems to have little stomach for confronting the
problems that beset the food aid program and may find some of its
programs supplanted by UNICEF activities in future.

--------------
Background
--------------


3. (SBU) Cairo-based Regional Refugee Coordinator Cheyne met
separately with WFP representative Marius de Gaay Fortman, and UNHCR
Representative Peter van der Vaart, in Algiers July 27, for an
update on food supplies for the Sahrawi refugees in the Tindouf
camps. The Bureau of Population, Refugees, and Migration (PRM) is
currently considering food aid funding for the Western Saharan
refugees.


4. (SBU) A major concern in the past has been the lack of control
over food aid distribution from the Rabouni warehouse area in
Tindouf to the four camps in the surrounding desert. Although UNHCR
is nominally responsible for food distribution from Rabouni, it was
apparent when RefCoord visited Tindouf last September that UNHCR has
surrendered control to the Sahrawi government-in-exile through the
Sahrawi Red Crescent (CRS). Under this arrangement there is no
tracking of food after CRS takes the food from Rabouni. The problem
has been further compounded by huge discrepancies in the various
estimates of the camp populations, and the refusal by the Sahrawis
and the GOA to permit a census or registration of camp inhabitants.
This has led to allegations of food diversion (possibly to support
Polisario forces). WFP food has appeared in the markets of Tindouf,
Mauritania and Mali, supporting these allegations. Uncertainty
about the numbers has also provoked persistent allegations of
"double funding" by the Algerian Red Crescent (CRA),a major conduit
for aid to the Sahrawi (CRA receives funding from over 30 different
donors).

--------------
Uncertain Numbers
--------------


5. (SBU) The Sahrawis and the GOA have for years maintained there
are 158,000 people in the camps and this figure has been the
yardstick for food and other aid requirements. But satellite
imagery obtained by the Europeans in 2005 suggested there were
around 90,000 camp inhabitants and UNHCR and WFP cut back food
supplies accordingly. The issue is still unresolved. After severe
flooding in the area earlier this year UNHCR/WFP established a
compromise formula whereby they would continue to supply sufficient
food for 90,000 of the most vulnerable camp inhabitants plus
additional food to assist an estimated 35,000 flood victims. The
Sahrawi and the GOA have not accepted that the new aggregate figure
of 125,000 reflects actual camp numbers, insisting instead that the
population remains at 158,000. The Sahrawis say they are managing
the supposed shortfall by reducing per capita allocations (e.g.,
they say refugees are getting 10.7 kg of wheat flour instead of the
WFP allocation of 13.5kg).

--------------
Pipeline Break
--------------

6. (SBU) With no resolution of these issues in sight, WFP's Fortman
painted a dismal picture of a fragile hand-to-mouth food pipeline as
reduced contributions by regular donors Spain, Canada, France and
the U.S., have this year failed to match program needs. Although EC
support has remained steadfast, and Sweden, Switzerland, the
Netherlands and Ireland have provided additional donations, the
pipeline currently shows a shortfall to the end of the CY2006 of
7,836MT of wheat flour, 1,242MT of pulses, 602MTMT of vegetable oil,
648MT of sugar and 116MT of high energy biscuits. Malnutrition
levels remain high with continuing deficiencies of micronutrients,
animal protein, (meat, milk) and fresh fruit (although ECHO has just
donated Euros 2m for fresh fruit for the remainder of the CY).

--------------
Crunch Time Ahead
--------------


7. (SBU) WFP intends to extend the current Protracted Refugee and
Recovery Operation (PRRO),due to expire on August 31, to the end of
CY2006. A Joint Assessment Mission (JAM) is tentatively planned for
September but may be postponed until late October/November (i.e.,
until after Ramadan). The findings of the JAM will be used as the
basis for a new 2007-2008 PRRO, where the major issue will once
again be the numbers. Neither Fortman nor Van der Vaart expects the
numbers issue to be resolved for the new PRRO. They point out that
support for registration/census among donors is uneven and UNHCR
itself has little motivation to support pressure for an agreement on
numbers since its aid programs are focused largely on infrastructure
and targeted camp populations and are not determined by aggregate
numbers. Negotiations for a tripartite agreement for aid
distribution between UNHCR, WFP and the CRA have been stalled
because the draft agreement uses 90,000 as the base figure for needs
assessment.


8. (SBU) In the absence of any clear consensus on numbers, WFP is
facing a crunch in its efforts to establish a new project document
with the GOA to take it beyond August 31. Fortman says WFP has
little support from the UN in forcing the issue and faces opposition
from the GOA - which also happens to be a major donor (about Euros
15m a year). Through its regional office in Cairo, WFP has advised
the GOA that it will extend the current program of supplying food
for 125,000 until the end of the CY, but that it would prefer to
base future food aid on agreed figures. If agreed numbers are not
forthcoming by January WFP will revert to 90,000 as the basis for
food distribution.

--------------
UNHCR's Performance
--------------


9. (SBU) Following our visit to Tindouf last September we reported
that UNHCR's Algeria mission seemed to be in disarray. It had poor
relations with WFP, the two senior officers in Algiers and the
nutritionist in Tindouf had left the country, the Head of the
Tindouf sub-office seemed disengaged and its supplementary feeding
programs appeared to be ineffectual. There have been some
improvements. There is a new representative (Peter Van der Vaart).
The Head of the Tindouf sub-office has been moved to Geneva and a
replacement has been named (Alessandra Morel) although she has yet
to take up the position. A new Junior Protection Officer (JPO)
position in Tindouf has just been filled and there are hopes that
the Tindouf office will now take a more active role in monitoring
the activities of the CRS and CRA in the field. There is a new
sense of amity between WFP and UNHCR although WFP's Fortman is
openly critical of UNHCR's apparent lack of interest in engaging the
GOA over the need to settle the numbers issue and to establish a
sound foundation for subsequent food aid programs. Fortman also
commented that UNICEF was aggressively trying to carve out a role in
Tindouf and might take over from UNHCR some responsibility for
supplementary feeding programs in future.

Ricciardone