Darfur - One Year After the Humanitarian Organization

UNCLAS SECTION 01 OF 02 KHARTOUM 000326 SENSITIVE SIPDIS NSC FOR MGAVIN, LETIM DEPT PLS PASS USAID FOR AFR/SUDAN ADDIS ABABA ALSO FOR USAU GENEVA FOR NKYLOH UN ROME FOR HSPANOS NEW YORK FOR DMERCADO E.O. 12958: N/A TAGS: EAID PREF PGOV PHUM SOCI SMIG UN SU SUBJECT: Darfur - One Year After the Humanitarian Organization Expulsions ¶1. (SBU) Summary:C,B Nearly one year after the Government of National Unity (GNU)-mandated expulsion of 13 international humanitarian organizations and three local aid agencies, the structure of humanitarian assistance provision in Darfur has been significantly altered.C,B Following the expulsions, the UN, the GNU, and donors prioritized provision of food aid, primary health care, and water, sanitation, and hygiene services.C, Remaining relief agencies responded through program expansion in priority sectors in order to prevent a humanitarian crisis in Darfur.C,B The GNU elected to support provision of safe drinking water and primary health care, but has lacked the capacity and resolve necessary to provide services at pre-expulsion levels.C,B In addition, service provision in many other humanitarian sectors remains challenging.C,B The presence of international humanitarian staff in field locations has declined significantly due to insecurity and bureaucratic impediments resulting in access limitations.C,B End summary. -------------- POST-EXPULSION HUMANIARIAN PROFILE -------------- 2.C,B (SBU) Following the expulsions, the UN, donors, and the GNU prioritized basic life-saving services comprising food aid, health, and water, sanitation, and hygiene provision.C,B Post-expulsion humanitarian gap-filling strategies focused on UN agencies' role as the provider of last resort to support government line-ministries in the provision of humanitarian assistance. However, relief agencies note that post-expulsion gap-filling activities, including line-ministry support, have increased the cost of humanitarian programs in Darfur and raised questions regarding the quality of services. 3.C,B (SBU) The GNU has made considerable efforts to provide water and health services in areas affected by the expulsions; however, UN agencies note that line- ministries operate near the limit of their current capacity.C,B Logistical and human resource systems have not yet developed to match service provision requirements and the ministries' expanded activities. ¶4. (SBU) Lack of government resources or GNU opposition to programming in some sectors has resulted in limited coverage of key sectors following the expulsions.C,B Significantly, and for the first time in internally displaced persons (IDP) camps, Sudanese government line-ministries, with support from the UN, have provided safe drinking water and health care services to replace the work of expelled NGOs. However, the Sudanese government has not supported sanitation and hygiene activities and nutrition services that relief agencies covering corresponding sectors would typically provide.C,B As part of UN efforts to fill post-expulsion nutrition service interruptions, UNICEF agreed with the GNU Ministry of Health (MoH) to temporarily support MoH nutrition staff salaries previously maintained by expelled NGOs; however, UNICEF terminated support on December 31, 2009.C,B UN agencies have encouraged the Sudanese government to increase support for neglected sector activities, but has not been successful in this effort to date. ¶5. (SBU) Several expelled NGOs had conducted camp management and protection activities; however, remaining NGOs were apprehensive to take over services without GNU authorization.C,B Following the expulsions, the UN advocated for formal GNU acceptance of the Office of the UN High Commissioner for Refugees (UNHCR),the UN agency mandated under the global humanitarian cluster system to lead camp management and coordination, as well as protection activities.C,B To date, the GNU continues to prohibit UNHCR from leading protection and camp management and coordination activities.C,B (Note: The GNU has authorized UNHCR to provide refugee support services in West Darfur, but the organization remains unable to conduct additional activities in the three Darfur States. End note.)C,B Remaining NGOs that previously provided protection support have continued to conduct protection activities, including support for victims of gender-based violence and development of child-friendly spaces. However, open dialogue about protection issues remains difficult and NGOs are compelled to conceal humanitarian protection programming.C, ¶6. (SBU) Following the expulsions, USAID's Office of US Foreign Disaster Assistance (USAID/OFDA) redistributed funds already planned for Darfur to support expansion of UN and NGO partner activities providing services previously conducted by expelled KHARTOUM 00000326 002 OF 002 NGOs.C,B Activities currently conducted through expanded programs include health provision, shelter and settlements support, agriculture and food security support, logistics and relief commodities support, and water, sanitation, and hygiene provision.C, In addition, the US Government negotiated admittance of international affiliate organizations of three expelled NGOs.C, USAID/OFDA continues to monitor the progress of affiliate organizations in obtaining seized assets and operationalizing provision of necessary humanitarian services.C, -------------- HUMANITARIAN ACCESS AND PROGRAM MONITORING -------------- ¶7. (SBU) NGOs remaining after the expulsions have faced declining security, including increased incidence of hostage-taking, as well as some remaining bureaucratic impediments and access restrictions causing organizations to reduce international staff presence and hire an increased proportion of national staff to implement field activities.C,B International staff presence has declined most significantly in deep field locations.C,B According to the UN, in mid-February 2009, 30 international staff members worked in six deep field locations in North Darfur and by mid-February 2010, the number had declined to two international staff covering two deep field locations in the state.C,B Many NGOs are establishing remote management and monitoring systems in response to increased access limitations and insecurity.C,B In addition, humanitarian organizations have raised concerns regarding post-expulsion emergency program quality, but due to reduced access organizations lack the ability to adequately assess programs. -------------- COMMENT -------------- ¶8. (SBU) Subsequent to the expulsions, humanitarian organizations in Darfur, and to some extent Sudanese government line-ministries, adapted to ensure delivery of life-saving assistance and successfully averted a humanitarian crisis in Darfur.C,B Nearly twelve months following the expulsions the humanitarian situation no longer warrants focus on post-expulsion gap filling, but rather requires evaluation of program quality and continued planning for aid delivery within the existing humanitarian context.C,B The GNU has demonstrated a willingness to support some humanitarian needs through primary health care service delivery and safe drinking water provision.C,B However, government efforts reveal the limitations of line-ministries to absorb even well-developed humanitarian programs.C,B UN agencies continue to support ministry capacity building, but the process requires additional time and resources.C,B As other critical needs remain, including nutrition, food security, and humanitarian protection, additional GNU engagement and support will be required.C,B USAID/OFDA continues to support the UN in advocating for improved GNU engagement in all humanitarian sectors. ASQUINO