MEETING WITH UN U/SG JOHN HOLMES: AMBASSADOR

C O N F I D E N T I A L SECTION 01 OF 03 ISLAMABAD 001568

SIPDIS

E.O. 12958: DECL: 07/11/2019
TAGS: PREL PREF PHUM EAID PGOV PTER PK
SUBJECT: MEETING WITH UN U/SG JOHN HOLMES: AMBASSADOR
PUSHES UN ON EARLY RECOVERY ASSISTANCE

Classified By: Anne W. Patterson, for reasons 1.4 (b)(d)


1. (C) Summary: In a July 10 meeting with UN Under Secretary
John Holmes, Humanitarian Coordinator Martin Mogwanja and UN
staff, the Ambassador stressed the importance of getting UN
humanitarian assistance into Buner and Swat as soon as
possible, the need for the UN to undertake donor
coordination, and concern over UN public exaggerations of the
severity of the current IDP situation. Holmes and Mogwanja
said that the UN had food and non-food items prepositioned in
Buner, that needs assessments would take place there and
possibly in the lower union councils of Swat in the coming
week, and that the UN will support return of the displaced
and early recovery so long as the GOP maintains a commitment
to voluntary return. The humanitarian assistance community
planned to meet with Northwest Frontier Province (NWFP)
authorities on July 11 to establish a framework for returns.
Holmes, who had visited Buner, found destruction minimal and
life returning to normal. He expected a much worse situation
in Swat and expected the military to be clearing resistance
there well into autumn. Holmes looked for a donor partner to
engage in donor coordination, although the Ambassador noted
that the U.S. and the U.K. are not well placed to serve in
this role. However, the U.S., with the Friends of Pakistan,
will coordinate the reconstruction assistance effort. Holmes
said that the global financial response to this humanitarian
crisis is "not what it should be" while the U.S. contribution
is greater than it should have to be. Holmes will seek to
ensure that UN security is an enabler not a blocker of
humanitarian assistance. He noted that, despite GOP
opposition, the UN will at some point have to "talk to the
other side" (i.e. the militants) to ensure security of
operations. End summary.

Returns to Buner; Need for UN Recovery Assistance
-------------- --------------


2. (SBU) The Ambassador, DCM, USAID Mission Director, DART
team lead, and Refcoord met July 10 with UN Under Secretary
John Holmes, Humanitarian Coordinator Martin Mogwanja and UN
staff. Holmes had arrived in Pakistan on July 7 and had
visited Buner District as well as an IDP camp and hosting
communities and schools. Holmes found destruction was
minimal, IDPs were returning to Buner, and life was returning
to normal despite the fact that five union councils had yet
to be fully militarily cleared. He concurred with recent
assessment findings that most of the damage was confined to
public facilities, including police stations, schools and
power grids. Holmes noted that he didn't think that the
situation he saw in Buner was at all indicative of what could
be expected in Swat where the UN as yet has no independent
information. The Ambassador stressed the importance of the
humanitarian assistance community's getting into both Buner
and Swat as soon as possible.

UN Stresses Importance of Voluntary Return
--------------


3. (SBU) In discussion of the Prime Minister's announcement
that government-facilitated IDP returns would begin July 13,
Holmes and Humanitarian Coordinator Martin Mogwanja stressed
the importance that the GOP remain committed to the
principles of voluntary return, particularly as it implements
its phased operational plan which includes the return of
30,000 people to Buner in nineteen days. The humanitarian
assistance community planned to meet with NWFP authorities on
July 11 to establish a framework for returns. With regard to
transportation of the IDPs, Mogwanja said UNHCR will make a
contribution in cash, not in kind, and may need additional
funds to support return.

Need UN to Undertake Donor Coordination
--------------


4. (SBU) The Ambassador stressed to Holmes the need for the
UN to undertake donor coordination, which the Pakistani
government is unable and the World Bank unwilling to do.
Holmes mentioned the need for a donor counterpart in this
coordination, and the Ambassador noted that neither the U.S.

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nor the U.K. is well placed to perform this role. The USAID
Mission Director explained that donors need a strategic plan
and organizational staff to focus their relief and recovery
efforts and ensure that there is no overlap or redundancy in
those efforts. The DCM noted that the U.S., with the Friends
of Pakistan, will coordinate assistance for reconstruction
with the GOP.

Security Must Enable, Not Block Assistance
--------------


5. (C) While mindful of the UN's loss of personnel in the
Peshawar Pearl Continental Hotel bombing, the Ambassador
urged that security concerns not constrain a timely UN
humanitarian response on returns. Holmes concurred on the
need to ensure that UN security is "an enabler, not a
blocker" of assistance. He said the UN lacked the analysis
and support to ensure provision of assistance in a safe
manner; UN security was insufficiently funded. He added the
UN is aware its staff, while not protected, are not a target
of terrorism. Holmes ventured that the UN will, at some
point, have to "talk to the other side" (i.e. the militants)
despite the GOP's opposition and government arguments that
such contact confers recognition and equates the government
with the enemy.

Continued GOP-UN Disagreement on Terminology
--------------


6. (C) Asked about the GOP's complaints regarding the UN's
categorization of the conflict in Pakistan, Holmes said the
UN and the GOP would have to agree to disagree. The UN will
continue to use the term "conflict" and will not, for
example, describe the military's operations against militants
as law enforcement operations against "miscreants," as the
government would like. However, the UN will seek not to be
provocative in its use of language.

UN Waziristan Concerns
--------------


7. (C) The Ambassador and the UN Under Secretary General
discussed government estimates of 50,000 displaced from
Waziristan with the anticipation of another 30,000. Holmes
and Mogwanja expressed concern that the encircling of Mehsud
territory could trap those legitimately fleeing the conflict
and seeking humanitarian assistance.

Exaggeration of Humanitarian Concerns
--------------


8. (SBU) The Ambassador expressed concern that the UN in New
York and Geneva was exaggerating the gravity of the
humanitarian situation and putting a more dire cast on it
than was justified. Holmes noted that the humanitarian
assistance community (both international organizations and
NGOs) is prone to exaggeration and that this tendency is
linked to money. He acknowledged the importance of
presenting a balanced picture but also noted that despite the
appreciated U.S. generosity, the global financial response to
this humanitarian crisis is "not what it should be." The
U.S. part in this response is greater than it should have to
be, he added, and the crisis is not getting the media
attention it deserves. In comparison with three weeks ago,
however, UN agencies are now "more relaxed" about the
situation although the NGOs continue to complain about
funding levels. USAID/OFDA DART leader commented that
UN-provided figures on the percentage response to the UN
appeal do not do justice to the US bilateral contribution.

UN Plans for Early Recovery
--------------


9. (SBU) The UN's Mogwanja emphasized the UN does have a
strategy for early recovery and will start next week with a
needs assessment in Buner and possibly the lower union
councils in Swat. USAID Mission Director reemphasized that UN
specification of the needs would be very helpful in
formulation of our assistance plans. Holmes said that,

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thanks to the U.S. and the EU, the World Food Program had
ample food, but funding was needed particularly for health,
early recovery, and education. Mogwanga said that while the
UN will respond to early recovery needs, he anticipated that
the military will still be clearing pockets of resistance in
Swat well beyond September. The DCM noted that many people
in Swat tolerated a year of violence but fled when jobs
disappeared and they could no longer support themselves;
similarly they will look at economic conditions, as well as
security, before they return.


10. (SBU) Holmes commented that when he questioned IDPs who
were not going back, some said they were waiting for
distribution of the government-promised PKR 25,000 ($310)
debit cards while others did not believe that their home
areas were safe. Mogwanja noted that Lt. General Nadeem, the
GOP's lead on the IDP crisis, reported 250,000 families will
have the debit cards by the third week in July; approximately
95,000 have been distributed so far. All agreed on the
importance of a serious GOP plan for reconstruction.
Pakistani capacity, however, is lacking. An important sign
of seriousness will be return of the police force.
Pressed on the importance of getting assistance up to Buner,
Office for the Coordination of Humanitarian Affairs (OCHA)
head Manuel Bessler said food and non-food items had been
prepositioned in Daggar. The UN is planning for a maximum of
six months of early recovery assistance while "One UN"
efforts will last three to five years. The DCM noted that
where early recovery ends, the efforts of the Friends of
Pakistan will begin on reconstruction.


PATTERSON