NORTHERN UGANDA: RETURNS OF DISPLACED PERSONS

UNCLAS SECTION 01 OF 03 KAMPALA 001613

SIPDIS

SENSITIVE
SIPDIS

DEPARTMENT FOR AF, AF/E, AF/SPG, DRL, INR, PRM; PASS TO
USAID AND OFDA

E.O. 12958: N/A
TAGS: PGOV PHUM KDEM EAID PREF UG SU
SUBJECT: NORTHERN UGANDA: RETURNS OF DISPLACED PERSONS
INCREASING

REF: KAMPALA 1583


1. (SBU) Summary: In northern Uganda, humanitarian
organizations are reporting increases in the numbers of
internally displaced persons returning to their land. The
process of "decongestion" of the camps has led to the
spontaneous movement of IDPs from more crowded camps to areas
where they can more easily access their land. The arrival of
harvest time and perceptions of a declining security threat
from the Lord's Resistance Army (LRA) are motivating the
voluntary movements. Camp decongestion is increasing food
security, creating less crowded living quarters, and
relocating IDPs near traditional trading centers.
Nonetheless, re-establishment of property boundaries, lack of
infrastructure to support basic needs, and the revitalization
of economic activity are posing significant challenges to
returnees. Serious human rights concerns remain, but field
reports suggest a decrease in abuses perpetrated by security
forces. As the security situation continues to improve, the
needs of northern Ugandans will shift away from emergency aid
toward long-term reconstruction. This will require a focused
approach by the GOU and donors to meet the needs of returning
northerners. End Summary.

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VOLUNTARY DECONGESTION UNDERWAY
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2. (SBU) As peace talks continue between the LRA and the
GOU, a significant trend of resettlement by internally
displaced persons (IDPs) has emerged in northern Uganda. The
"decongestion" of over 200 camps has taken two forms. In the
Acholi districts of Pader, Kitgum, Gulu, and the newly formed
Amuru districts, IDPs are moving to sites closer to their
original homes and community centers. (These sites are
technically called "decongestion camps", but are often
informally referred to by donors and NGOs as "land access
sites", leading to some confusion. For consistency, we will
use "decongestion camps" in official communication.) IDPs in
Acholiland are returning to their homes to participate in
farming activities during the day, but elect to continue to
spend their nights within the security of the new sites or
existing IDP camps. UNOCHA reports that in Gulu and the new
Amuru district, 18 decongestion sites are currently occupied.
In Pader, the GOU has planned 46 new sites with 18 already
occupied and in Kitgum, 47 sites are planned with four that
are operational. Each site has a UPDF garrison stationed in
close proximity. While UNOCHA estimates that close to
100,000 people have moved to decongestion camps in
Acholiland, the numbers are expected to be much higher once
results are obtained from World Food Program's revalidation
census of all IDPs in Acholi district (expected start date is
early September). In Lango region, UNHCR reports that nearly
120,000 people in Lira--35 percent of the displaced
population in the district-- have already left the camps and
are living on and working their own lands. The UN and
Ugandan government agencies are taking a census in September
to get a better understanding of the scope and magnitude of
population movements in the north.


3. (SBU) Reporting from the UN, NGOs, the GOU, and USAID
teams indicates that movement by the IDPs is voluntary. The
arrival of harvest time and perceptions of a declining
security threat from the LRA is fueling returns. There is no
indication that the UPDF is restricting movement, although
sundown to sunup curfews remain in effect in the camps and
new sites in Acholi region. A recent USAID/OFDA field report
notes that family members, particularly children and the
elderly, have been left behind in camps while home
construction and land preparation takes place in the
decongestion camps.

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IMPLICATIONS: CAUTIOUS OPTIMISM AMID CHALLENGES
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4. (SBU) Increased food security, less crowded living
conditions, and the concentration of IDPs near traditional
trading centers are positive results of decongestion. The
harvest is projected to be productive in most places and
diverse in crop type. The UN World Food Program has reduced
rations to the general camp population to 40-60 percent of
the daily requirement. Recent food distribution as witnessed
by poloff and OFDA officials at Amuru camp (the second
largest in Gulu-Amuru district) was markedly calm. Food

KAMPALA 00001613 002 OF 003


assistance experts noted the IDPs displayed no signs of the
panic and disorder that often accompanies distribution in
locations with food insecurity. The renewed presence of
women and children in the streets in Gulu municipality and
the resumption of public bus service between Kitgum and Gulu
towns indicates northerners are increasingly mobile. An OFDA
field officer speculates that as many as 40 percent of the
displaced population could leave the original IDP camps for
the decongestion camps starting in mid-October and notes that
"humanitarian conditions are the best I've seen in the north
in 18 months".


5. (SBU) According to the OFDA Regional Advisor, UNHCR is
estimating that an additional 110,000 IDPs from Lira district
will return to their lands in October when grass will be
available for home construction and that approximately
100,000 will remain in Lira camps because they are from areas
near the camps or are too indigent to return to their own
land. There are no decongestion camps in Lira. Furthermore,
IDPs interviewed in Pader stated that more family members
will move to new sites once the dry grasses are available,
the second harvest begins, new food distribution patterns are
established, and access to healthcare and education services
becomes more readily available.


6. (SBU) However, returnees are faced with significant
challenges after decades of war and displacement, including
re-establishment of property boundaries and a lack of
infrastructure to support basic needs and the revitalization
of economic activity. According to northern GOU officials
and NGOs, many IDPs are returning to their lands to discover
that their homes and traditional markers of property lines
(such as trees) are gone. With a significant increase in
returns now a becoming a reality, there is concern among
stakeholders that land distribution will be a flashpoint
issue. A high level of fear of the LRA remains amongst the
population, and any surge in attacks could negatively affect
current levels of humanitarian activity and resettlement.
Infrastructure in the north cannot support massive returns in
its current state and despite attempts at increased autonomy
by IDPs, many remain dependent on humanitarian agencies for
services.

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UPDATE ON HUMAN RIGHTS
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7. (SBU) While serious human rights concerns remain,
including access to healthcare and education by vulnerable
groups, field reports suggest a decrease in abuses
perpetrated by security forces and major reductions in child
"night commuters" (reftel). IDPs in decongestion camps are
reporting improved relations with local UPDF garrisons and
cite UPDF presence near the decongestion camps as a key
factor in their decision to move from the original IDP camps.
Some reports indicate an overall reduction in reported
attacks against civilians by security forces. Protection
issues including rape, particularly for women and children,
continue to be a problematic. The UN's Office of the High
Commissioner for Human Rights in Gulu is in regular contact
with the UPDF on human rights issues and has found UPDF
divisional commanders to be highly responsive in following up
on cases. In many cases, the military has made arrests.
Unfortunately, due to the weak police presence in the region,
the military does not turn over its soldiers who commit
crimes against civilians to local law enforcement officials,
preferring instead to try them in military courts.


8. (SBU) The UPDF has rescued over 17,000 children from the
LRA since 1996. Save the Children officers also told poloffs
that after a series of training sessions on protection
issues, the UPDF changed its operational tactics when
attacking LRA camps to ensure the maximum protection for
child victims. Non-governmental organizations also reported
that the UPDF followed agreed upon procedures for processing
formerly abducted children after rescues. In some cases,
however, children are kept longer in UPDF's child protection
unit if they have valuable time-sensitive intelligence
information. Save the Children is working with the CPU to
allow children in such cases to be questioned at reception
centers rather than in a military environment.
Non-governmental organizations arranged for meetings between
the UPDF and child victims to share their experiences in
captivity and during rescue operations to improve the
military's handling of victims.

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9. (SBU) With reports of arrivals at night commuter
shelters, reception centers, and UPDF child protection units
markedly reduced (reftel),UNICEF and other stakeholders are
assessing possible alternative uses for these locations that
would support reconciliation and reconstruction activities.
Field reporting and poloff visits to camps found many
displaced children are not attending school. The children
cited the absence of appropriate clothing and text books as
the reason they are turned away. While access to water in
the camps is improving, due in part to USAID programs,
sanitation and healthcare are lacking, with the largest
impact, as usual, on vulnerable populations.

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COMMENT
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10. (SBU) Decongestion, despite many challenges, is
generally a good news story. We expect displaced persons to
continue to return to their land, whether permanently or
part-time, as long as the security situation continues to
improve. Returnees, however, are going back to areas without
little or no services which poses an enormous challenge to
the Government of Uganda, the UN, and international donors.
BROWNING