UNSC: U/SYG HOLMES ON HUMANITARIAN SITUATION IN

UNCLAS SECTION 01 OF 03 USUN NEW YORK 000410

SIPDIS

SENSITIVE
SIPDIS

DEPT. FOR IO, PRM AND AF; USAID FOR DCHA AND AFR; GENEVA
FOR RMA; ROME FOR RNEWBERG; NSC FOR PMARCAHM

E.O. 12958: N/A
TAGS: UNSC PHUM PREF SO UG
SUBJECT: UNSC: U/SYG HOLMES ON HUMANITARIAN SITUATION IN
SOMALIA AND UGANDA


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Summary
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1. (U) On May 21 John Holmes, UN Under Secretary General
(U/SYG) for Humanitarian Affairs and Emergency Relief
Coordinator, briefed an open session of the Security Council
following his recent mission to Somalia and Uganda. Holmes
expressed concern over the humanitarian situation in Somalia,
where recent violence in Mogadishu has exacerbated precarious
conditions and created significant additional displacement.
On Uganda Holmes expressed cautious optimism at resumed
negotiations with the Lord's Resistance Army (LRA) and
limited progress in addressing the large-scale displacement
in northern Uganda. Council members expressed no dissension
regarding the worrying humanitarian conditions in Somalia,
with many pressing for increased access for relief agencies
and further reconciliation efforts to solidify the current
fragile stability. Council members also expressed support
for the ongoing negotiations between the Government of Uganda
and the LRA, but recognized that significant humanitarian
needs still exist.


2. (SBU) On May 22, U/SYG Holmes briefed the New York
Humanitarian Liaison Working Group (HLWG) on the same topics,
reiterating much the same message but providing additional,
more frank impressions to the closed group. Holmes was
generally pessimistic about the situation in Somalia,
including the Transitional Federal Government's (TFG) lack of
openness to a more inclusive political dialogue. On Uganda,
Holmes reported to the HLWG that while he currently sees an
opportunity to resolve one of the worst humanitarian
situations in Africa, outstanding International Criminal
Court (ICC) warrants for LRA leaders represent a significant
obstacle.

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Somalia
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3. (U) Holmes described his Somalia mission as an
opportunity to assess the humanitarian situation first-hand
and to discuss with authorities key issues including access,
the protection of civilians, and the security of humanitarian
operations. Due to long-standing security restrictions, his
visit was the fist high-level UN presence in Somalia since
the early 1990s. Holmes had intended to spend two days in
Somalia, visiting both Mogadishu and Jowhar, but roadside
bombs along his planned route prompted UN security to cut
short his visit in Mogadishu and cancel travel to Jowhar.
Homes stressed in his statement to the UNSC and to the HLWG
that he does not believe the attacks were directed at him,
but rather meant as a general message of continuing defiance
by elements opposed to the TFG.


4. (U) While some of the nearly 400,000 people displaced by
the late April fighting in Mogadishu have returned, Holmes
emphasized that the vast majority has not moved back to the
city. Factors inhibiting large-scale return include
continued fear of violence, warnings by the TFG to internally
displaced persons (IDPs) not to return to public buildings in
Mogadishu, and the fact that many homes were destroyed.
Holmes stated that many of those displaced by the recent
fighting continue to live in the open and some have resorted
to renting space under trees for shelter.


5. (SBU) In the Security Council Holmes noted some progress
in the last few weeks on humanitarian access, due in part to
increased cooperation from TFG authorities. However, Holmes
stressed, current levels of assistance cannot meet the needs,
pockets of south and central Somalia remain inaccessible, and
obstacles to humanitarian access continue. Holmes reported
that during his visit he urged TFG President Yusuf and Prime
Minister Gedhi to facilitate relief efforts, including by
establishing better liaison mechanisms with the humanitarian
community. Holmes also urged TFG authorities to apply more
control over armed groups manning checkpoints, many of whom
extort payment for passage, and to minimize visa and customs
requirements for humanitarian agencies. Holmes reported to
the HLWG that he does not feel his appeals to the TFG

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received much attention and that the TFG displayed a
troubling level of suspicion regarding the role of
international humanitarian actors.


6. (SBU) Holmes reiterated concern about "severe breaches of
International Humanitarian Law" during the recent fighting,
citing the indiscriminate use of force in civilian areas. He
also noted concern over reported human rights abuses,
including abductions, arbitrary detention, deportation, and
unlawful killings. Holmes reported that President Yusuf
rejected any allegations of TFG involvement in such activity,
but that Yusuf did accept a proposed visit to Somalia by the
Office of the High Commission for Human Rights (OHCHR). In
the HLWG, Holmes questioned whether the TFG knew what they
had agreed to, but he stressed the importance of holding the
TFG to its commitment.


7. (U) Holmes concluded his discussion on Somalia in the
Security Council by reiterating the UN's deep concern for the
humanitarian situation, and he called on the international
community to remain focused and engaged. Holmes described
increased relief efforts by UNICEF and the UN High
Commissioner for Refugees (UNHCR),as well as a ten million
dollar contribution from the UN's Central Emergency Response
Fund (CERF). He called on donors to increase their response,
including through additional support to NGOs working in
Somalia.

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Uganda
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8. (U) Holmes presented a more encouraging picture on
Uganda, describing an opportunity to resolve the
long-standing crisis through support to the Juba process,
continuing humanitarian aid, and assistance for the
transition from relief to recovery. Holmes reported that the
humanitarian situation in the conflict-affected districts of
northern Uganda is improving, in line with increased security
due to the current ceasefire. Up to three quarters of the
IDPs in some areas have returned home. However, 1.6 million
people remain in camps and in the Acholi area only one per
cent have permanently returned to their places of origin.


9. (SBU) Holmes characterized current needs in Uganda as a
"triple challenge": humanitarian assistance to those still
displaced; continuing assistance to those beginning to move
home; and basic support leading to longer-term development
for those who return. This shifting situation requires a
flexible and well coordinated approach, Holmes stressed, and
he discussed this challenge with President Museveni. Holmes
referenced the Government of Uganda's "Peace, Recovery and
Development Plan," developed in cooperation with the World
Bank, and noted that it needs to be implemented in parallel
with continuing humanitarian relief efforts. To the HLWG,
Holmes noted that President Museveni was skeptical of the
Juba process and seemed to feel that the LRA threat had
largely passed.


10. (SBU) At IDP settlements in Kitgum District, Holmes
heard directly from IDPs that they would not feel safe enough
to return home until a final agreement with the LRA was
reached. He therefore called for full international support
for the Juba talks, noting that the "stakes are high" for
both northern Uganda and southern Sudan. Without providing
additional detail, Holmes declared to the Security Council
that the current ICC warrants will have to proceed "in a way
that satisfies the requirements of both peace and justice."
In his meeting with the HLWG, Holmes elaborated, stating that
he believes LRA leader Kony "will not fall for sequencing" a
peace agreement and further ICC action, and that Kony will
demand that all ICC warrants be dropped as a prerequisite to
any final deal.


11. (SBU) Holmes also raised GOU disarmament efforts that
have exacerbated tensions in the northeastern area of
Karamoja, citing allegations of excessive force and human
rights violations. He encouraged the GOU to take cautions
from a recent OHCHR report seriously and to step up
development efforts in parallel to the disarmament process.

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Holmes reported to the HLWG that President Museveni did not
welcome Holmes' raising this issue, but that other levels of
the GOU were receptive to the idea that development must
accompany disarmament efforts.

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UNSC Reaction
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12. (U) Ambassador Wolff delivered the U.S. intervention,
calling for greater humanitarian access in Somalia, a
comprehensive reconciliation process, and contingency
planning for a possible UN peacekeeping mission. Ambassador
Wolff condemned recent attacks on AMISOM in Mogadishu and
called on Somalis and regional stakeholders to prevent
further extremist violence. The U.S. statement commended the
efforts of Special Envoy Chissano in restarting the Juba
talks and called for strong UN leadership in ensuring
continued coordination of humanitarian response activities in
northern Uganda. The complete statement can be found at the
USUN website: www.un.int/usa.


13. (U) Security Council members stressed the need for broad
political dialogue in Somalia and expressed support for a
reconciliation congress. Many members called on the TFG to
facilitate access for humanitarian workers, and condemned the
recent attack on Ugandan peacekeepers. A number of
interventions also welcomed a visit to Somalia by HCHR
Arbour. Council members commended the extended ceasefire
between the GOU and the LRA, and expressed overall optimism
for the resumed negotiations in Juba. Many, including Qatar,
expressed general support for Security Council briefings by
the Under Secretary General for Humanitarian Affairs. (Note:
In the past, South Africa and others have objected to this
agenda topic, fearing that its undefined scope could open
discussion to a range of countries and situations. End
note.)


14. (U) Seeming slightly surprised, U/SYG Holmes summarized
Security Council feedback to his presentation as unanimous
regarding the situation in Somalia and next steps: agreement
on the size and severity of the crisis, support for ongoing
humanitarian efforts, the need to increase AMISOM capacity,
an urgent need for broader political dialogue, and support
for the visit of the OHCHR. He reiterated his call on the
TFG to facilitate the delivery of assistance, specifically
mentioning the Merka airstrip that remains closed to relief
flights.


15. (U) Holmes praised the cooperation of the GOU in
addressing the shift in some areas from emergency relief to
longer-term development, and appealed to the international
community to remain supportive and engaged in Uganda. Asked
in the HLWG about the status of the Humanitarian Coordinator
(HC) for Uganda (following the GOU's recent rejection of the
last UN-appointed HC),Holmes answered that he had raised the
issue with the GOU on his visit and that he has ideas on how
to proceed, but that he needs to have additional internal
discussions before reporting back to the HLWG.
KHALILZAD