CHALLENGES TO PROVIDING ASSISTANCE IN THE FORMER WESTERN

UNCLAS SECTION 01 OF 04 KHARTOUM 000642 DEPT FOR SE GRATION, S/USSES, AF A/S CARSON, AF/E NSC FOR MGAVIN DEPT PLS PASS USAID FOR AFR/SUDAN ADDIS ABABA ALSO FOR USAU SENSITIVE SIPDIS E.O. 12958: N/A TAGS: EAID PGOV PREL KPKO SOCI ASEC AU UNSC SU SUBJECT: CHALLENGES TO PROVIDING ASSISTANCE IN THE FORMER WESTERN KORDOFAN STATE -------------- Summary -------------- ¶1. (U) During the 21-year long north-south civil war, Southern Kordofan State experienced high levels of destruction and displacement. Four years after the signing of the Comprehensive Peace Agreement (CPA),which ended the conflict, populations in Muglad and Lagawa localities in western Southern Kordofan, continue to face insecurity and insufficient resources due to limited water availability and deteriorating food security conditions. In response, USAID's Office of U.S. Foreign Disaster Assistance (USAID/OFDA) funds international non-government organization (INGO) Concern to provide water, sanitation, and hygiene (WASH) assistance in Muglad and German Agro Action (GAA) to furnish agriculture, food security, and WASH assistance in Lagawa. From April 4 to 9, USAID/OFDA and USAID's Office of Food for Peace field staff traveled to western Kordofan to meet with partners and monitor the humanitarian situation. According to USAID staff observations, significant challenges remain in western Kordofan due to limited government recovery and development initiatives and insecurity caused by lack of disarmament, demobilization, and reintegration (DDR) programs for former Popular Defense Forces (PDF) youth. Aggravating the situation, the Sudanese government forced at least six national and international non-governmental organizations (NGOs) to leave the area as a result of the early March NGO expulsions, limiting the provision of assistance to vulnerable individuals. END SUMMARY. -------------- Background -------------- ¶2. (U) Prior to the signing of the CPA in 2005, western Kordofan was a separate state, with El Fula as the capital. In the former state, Arab ethnic groups constituted a majority of the population and had a significant share of power in the state government. However, following the signing of the CPA and implementation of the CPA protocols, western Kordofan was split into two states, with part of the state merging with Northern Kordofan and part with Southern Kordofan. The majority of the former western Kordofan localities added to Southern Kordofan were mainly inhabited by the Misseriya Arabs, a largely pastoralist ethnic group, who seasonally herd cattle along migration routes through Southern Kordofan in search of grazing land and water. ¶3. (U) Due to the area's location along the north-south border, the more than two decade conflict between the Sudanese Armed Forces (SAF) n and the Sudan People's Liberation Army (SPLA) devastated Southern Kordofan, including the western Kordofan area. During the conflict, food insecurity, fighting, and disease killed more than two million people throughout Sudan, forced an estimated 600,000 Sudanese to seek refuge in neighboring countries, and displaced four million others within Sudan, according to the UN. The conflict also significantly reduced the government's capacity to provide basic services to local populations. ¶4. (U) Since the signing of the CPA in 2005, and following the mid-May 2008 conflict in Abyei, Southern Kordofan has experienced significant population movements, exacerbating tensions over scarce resources, such as water and access to land. Lagawa is one of the counties with the highest levels of returnees in the Three Areas and Southern Sudan. According to the International Organization for Migration (IOM),by December 2008, more than 15,000 internally displaced persons (IDPs) had returned to Lagawa. (Note: Due to insecurity, organizations have been unable to compile return statistics for Muglad or El Fula. End Note.) ¶5. (U) According to the International Crisis Group (ICG),limited peace dividends and lack of DDR programs for former combatants have led to increased insecurity and lack of reconciliation among ethnic groups. In addition, conflict over land ownership and grazing rights has led to continuing tensions in the region between the Nuba Ajang of Abu Junuk and the Misseriya of El Sunut. Since 2007, these tensions have led to at least ten deadly inter- or intra-ethnic group clashes over land, according to ICG. In one case, interethnic violence during the Misseriya migration season in 2007 resulted in 60 deaths. Ongoing clashes, combined with desertification, have strained limited natural resources and threatened livelihoods and food security. ¶6. (U) Due to the limited number of NGOs operating in western Kordofan and because the UN does not maintain a permanent presence in the area, the population has limited access to recovery and KHARTOUM 00000642 002 OF 004 reintegration assistance. Exacerbating the limited coverage, the Sudanese government forced at least six national and international NGOs to leave the area as a result of the early March NGO expulsions. In Fiscal Year 2009, USAID/OFDA funded Save the Children/U.S. (SC/US) for a significant health, food security, and WASH program with sub-offices in Muglad and Lagawa. However, SC/US has been unable to implement the program due to the organization's expulsion in early March. ¶7. (U) Based on food commodity price observations, the USAID team reported that Muglad and Lagawa may be experiencing food insecurity conditions, which could deteriorate during the annual May/June to September rainy season. Food insecurity in western Kordofan results mainly from low supply due to poor harvests during previous harvest seasons in nearby areas. Communities in western Kordofan also import grains from as far as Gedaref State in eastern Sudan. However, during the annual rainy season roads are usually blocked, increasing demand for food and leading to escalating staple food prices. In 2008, the government released grains from its strategic reserve to stabilize grain prices in the local markets. However, community members reported that the impact was insignificant due to the poor quality of the commodities provided. In 2008, CARE and the UN World Food Program also responded to food insecurity in the El Sunut/Abu Junuk areas with a food-aid distribution. Food insecurity in the El Sunut/Abu Junuk areas in 2008 resulted from temporary displacement caused by fighting over water resources in El Sunut. -------------- WASH Activities in Muglad -------------- ¶8. (U) In response to assessed recovery needs for water along migration routes, USAID/OFDA has included Southern Kordofan in an ongoing initiative to provide water programs in the north-south border zone linked to regional peace initiatives. In Muglad, two local NGOs, the Sudan Social Development Organization (SUDO) and Zam Zam, work with USAID/OFDA partner Concern to rehabilitate water yards and construct haffirs, a traditional water reservoir. At present, SUDO is rehabilitating three water yards through a private contractor, Ma Median, who has accomplished more than 80 percent of the rehabilitation in one site and 50 percent in the other two sites. SUDO has also sub-contracted the construction of two haffirs through a private contractor. Although the contractor completed the excavation work on one haffir, the team was prevented from continuing work following the Sudanese government's early March termination of SUDO's agreement and subsequent seizure of some of the haffir supplies in Muglad. The government has permitted the water yard rehabilitation to continue under close supervision from Concern and local authorities, particularly the Government of National Unity (GNU) State Water Corporation. ¶9. (U) Prior to SUDO's early March dissolution, the organization was also constructing 80 household latrines, or 20 latrines for each water yard or haffir, and four school latrines and providing eight training courses covering water yard operation and water facility management and maintenance. Currently, all of SUDO's sanitation and hygiene programs have been suspended. Zam Zam is planning to construct 20 household latrines and one school latrine in an undetermined location for water yard rehabilitation. ¶10. (SBU) One of the key challenges facing the implementation of the USAID/OFDA-funded grant, scheduled to finish in late July 2009, is the absence of SUDO, a key implementing partner. Negotiations are underway between the Concern country office in Khartoum, the GNU Humanitarian Aid Commission (HAC),and SUDO to ensure that Concern can freely access money deposited into SUDO's account so that Concern can pay contractors to finish work prior to the start of the rainy season. Concern is also considering assuming SUDO's previous functions, as the organization already has a presence and good reputation among the community and local authorities in the area. Concerns that Zam Zam is implementing programs too slowly pose another challenge to program implementation, as drilling and excavation should be completed prior to the start of the rainy season. -------------- -------------- Food Security, Agriculture, and WASH Programs in Lagawa -------------- -------------- ¶11. (U) USAID/OFDA funds GAA to implement agriculture and food security programs targeting approximately 52,500 individuals in Lagawa and Unity State. As of March, 200 beneficiaries, including 142 women from 13 villages had participated in group vegetable production. GAA had also begun training on low-cost cultivation KHARTOUM 00000642 003 OF 004 techniques and irrigation methods and delivered vegetable seeds, tools, and gardening materials in eight villages following the establishment of ten vegetable gardens. ¶12. (U) In addition, GAA verified and trained 133 existing community animal health workers (CAHWs) and began procuring the required drugs, vaccines, and related materials and equipment to implement animal health programs. Once these are procured, CAHWs expect to vaccinate 175,000 heads of cattle. GAA also selected 200 people to benefit from goat re-stocking activities in nine villages and 200 fishermen--constituting 150 seasonal fishermen and 50 professionals--in both Southern Kordofan and Unity states to provide with fishing equipment and training on fish processing, preservation, and marketing. ¶13. (SBU) GAA selected 20 villages for the construction of two water yards, eight boreholes, and ten shallow wells. GAA plans to establish and conduct training for 20 water management committees and 40 hygiene promoters in May. However, GAA reported to USAID that the organization is planning to close-out recovery and development programs in Unity State in 2009 due to uncooperative local officials, particularly at the Southern Sudan Relief and Rehabilitation Commission. (Note: Unfortunately, it is not uncommon throughout Southern Sudan for NGOs to experience difficult, manipulative local authorities that make program implementation challenging. End Note.) -------------- Impact of NGO Expulsions -------------- ¶14. (U) The dissolution of key national NGOs, such as SUDO, has had a negative impact on the provision of recovery programs and has led to the suspension of the organization's water projects. In addition, SC/US has been unable to implement planned health and WASH projects in Muglad and Lagawa with USAID/OFDA funding. Medecins Sans Frontieres/Switzerland (MSF/CH),which operates mobile feeding centers in Muglad hospital, has decided to voluntarily cease activities after the suspension of other MSF agencies. The expulsions further restricted USAID's Office of Transition Initiatives partner PADCO-AECOM's programs in the area. ¶15. (U) In Lagawa, the expulsion of SC/US, CARE, and the International Rescue Committee (IRC),in addition to other NGOs, negatively affected humanitarian capacity. In the absence of these agencies, support in critical sectors such as health, WASH, and livelihoods has diminished and will be difficult to re-establish in the near future, as remaining NGOs may fear future suspensions or lack the capacity to expand. NGOs are cautious about expanding programs and areas of operation due to the Sudanese government's proposed strategy to nationalize humanitarian work in Sudan within three years. Despite reassurances from the government that this process of "Sudanization" will not infringe upon the work of remaining international NGOs, many NGOs expressed concern that calls for nationalization could lead to future program suspensions or asset seizures. -------------- GNU-UN Assessment of Humanitarian Needs -------------- ¶16. (U) On April 7, a team consisting of the UN, the Southern Kordofan State government, and the GNU conducted a one-day visit to Lagawa to meet with key stakeholders including NGOs, community-based organizations, community leaders, and local officials. The purpose of the assessment was to identify possible gaps in assistance following the NGO expulsions and to assess the humanitarian situation in the area. The team conducted a similar visit to El Fula on April 6; however, the outcome of the assessment remains unknown. According to some NGO staff, the assessment constitutes a positive step, indicating that the government realizes that the expulsions have created significant gaps. However, others said that the government could easily manipulate the assessment results and politicize findings unless the UN takes a firm stand. Although the team has not yet released the results, NGO staff, community leaders, and some government officials expressed concern about the existence of significant gaps in the Three Areas, including Southern Kordofan, due to the expulsions. -------------- Fragile Security Situation and Lack of DDR -------------- ¶17. (U) Since the end the north-south conflict in 2005, western KHARTOUM 00000642 004 OF 004 Kordofan has received little or no reintegration assistance for ex-PDF fighters, according to community youth groups, community leaders, NGO staff, and government officials. Over the past few months, the area has experienced increased insecurity, including intermittent ambushes by unidentified armed groups on cars and passengers on highways. High unemployment and lack of training opportunities for youth means that many young people in the area remain idle for the majority of the year, possibly leading to outbreaks of violence and interethnic conflict. Accounts abound of the ruling NCP handing out weapons along the border areas including to many Misseriyya in hopes of using them in any future fighting against pro-SPLM tribes such as the Ngok Dinka of Abyei and Nuba. ¶18. (U) In a recent study, the Humanitarian Policy Group and the Oversees Development Institute, with the coordination of the UN Development Program, proposed medium- and long-term interventions to improve livelihoods and reduce the likelihood of conflict in Misseriya areas of western Kordofan. The proposed interventions include encouraging grassroots reconciliation and local level discussion on natural resources, defusing tensions among youth through cash interventions and extension of DDR programs, promoting civic education, developing infrastructure to stimulate development in pastoralist areas, improving water sources and supporting livestock interventions, promoting environmental advocacy, and supporting income-generating activities, including agricultural support and youth training. The study mentioned that communities expect the central and state governments, as well as oil companies, to take the lead in implementing the interventions mentioned above. -------------- Comment -------------- ¶19. (U) Four years after the signing of the CPA, the population of western Southern Kordofan State continues to encounter insecurity and instability, as well as limited provision of basic services. Combined with population movements, this situation has led to resource scarcity, particularly in the areas of water and livelihoods, and contributed to heightened tensions between ethnic groups. To mitigate these tensions and meet the needs of the population, USAID/OFDA has included Southern Kordofan in an ongoing initiative to provide water programs, as well as agriculture and food security assistance, in the north-south border zone. ¶20. (U) In the coming months, Post will continue to monitor the humanitarian situation closely, particularly activities directly affected by the expulsions, such as the implementation of USAID-funded Concern projects in Muglad. Post is also monitoring progress on the Three Areas assessment to review gaps in humanitarian assistance, as well as recommendations for future humanitarian operations. Post will continue to monitor the food security situation in the area and how food security conditions are affecting the implementation of remaining projects. FERNANDEZ