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West Africa: Humanitarian Appeal
AfricaFocus Bulletin
Nov 16, 2004 (041116)
(Reposted from sources cited below)
Editor's Note
The United Nations last week launched its humanitarian appeal for
2005, stressing "forgotten crises" and warning of the consequences
of a global downturn in humanitarian funding. UN Under-Secretary-General
for Humanitarian Affairs Jan Egeland mentioned particularly
Northern Uganda, because of the scale of the crisis, and Cote
d'Ivoire, for which by this month the UN had received only 18% of
its 2004 appeal.
Overall, the appeal for 2004 had received only 55% of the $3.4
billion in requested funding by this month. Next year's appeal, for
$1.7 billion, does not include amounts requested for the Sudan,
Iraq, Afghanistan, or Colombia. It also focuses more exclusively on
"purely humanitarian" needs, limiting appeals for development and
reconstruction needs that donors are more reluctant to fund. The
shortfall also reflects a downturn in global humanitarian funding
in 2004 of 50 percent as compared with 2003, noted Mr. Egeland.
This AfricaFocus Bulletin contains excerpts from the section of the
2005 appeal on West Africa, with a useful summary of recent
developments in the region. Full information on the appeal is
available on http://www.reliefweb.int
For commentary on last year's humanitarian appeal, see
"Humanitarian Double Standard"
(http://www.africafocus.org/docs03/un0311.php). For detailed
statistical updates on UN humanitarian appeals, see
http://ocha.unog.ch//fts/index.asp
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Consolidated Appeals Process (CAP):
Humanitarian Appeal 2005 for West Africa
November 11, 2004
http://www.reliefweb.int
UN Office for the Coordination of Humanitarian Affairs
Palais des Nations 8-14 Avenue de la Paix
CH-1211 Geneva, Switzerland
Tel.: (41 22) 917.1972 Fax: (41 22) 917.0368
E-Mail: cap@reliefweb.int
1. Executive Summary
Having closely examined the overall human security situation in
West Africa during a workshop held in August 2004 in Dakar,
representatives from UN agencies, NGOs and donors concluded that
the humanitarian and political trends in the region once again
called for an inter-agency Consolidated Appeals Process (CAP).
Although progress towards peace and stability had recently been
made in countries such as Liberia and Sierra Leone, regional
partners unanimously agreed that the overall human security in the
region would remain fragile and could potentially deteriorate in
2005. It is anticipated that in the next 12 months, the
humanitarian community will have to address three main challenges:
(1) mitigating the immediate life-threatening consequences of both
active and simmering civil conflicts in the sub-region; (2)
preserving coping capacities and social cohesiveness in host
communities directly or indirectly affected by complex emergencies;
and, (3) managing the aftermath of the most severe locust invasion
in 15 years that has affected almost the entire sub-region, which
is mostly composed of countries at the very bottom of the Human
Development Index (HDI).
The stalemate in the peace process in Cote d'Ivoire, the slow
reintegration and reconstruction process in Liberia, the political
tension and the social unrest in Guinea, the alleged dormant
presence of Islamic fundamentalist groups in the Sahel and the
uncertainty about the impact of the locust plague are all factors
that could destabilize local communities or possibly trigger
instability across the sub-region. The conflicts in the region have
created a pattern of humanitarian needs that transcend national
borders, and there are now a number of interdependent clusters of
countries in crisis that serve as potential exporters of further
instability. So far, the border areas in West Africa have not
received sufficient attention to reverse the deterioration of
living conditions among host communities and their unfortunate
guests from neighbouring countries. As pointed out by the Security
Council during its recent visit to West Africa, efforts to address
the transnational character of the crises will not be successful
unless effective regional solutions are found.
It is in this context that this year's CAP for West Africa focuses
on transnational issues that affect the quality of the humanitarian
environment in the sub-region. Projects submitted for 2005 include
proposals to: provide protection and assistance to people that are
forced to flee; expand the coping capacities of communities that
welcome those in distress; strengthen national capacities to
address cross-border health and diseases issues; mobilize
humanitarian, political, social and security resources capable of
protecting humanitarian space; preserve and restore peace by
interacting with the political actors and assisting civil society
networks; and, to establish coordination and response mechanisms
capable of anticipating crises and alleviating human suffering in
times of complex emergencies and natural disasters.
Consolidated Appeal for West Africa 2005
Summary of Requirements - by Sector
as of 19 October 2004
Compiled by OCHA on the basis of information provided by the
respective appealing organisation.
Coordination and Support Services 4,795,447
Education 866,363
Food 125,094,945
Health 14,955,731
Protection/human Rights/rule of Law 6,346,023
Water and Sanitation 221,590
Grand Total 152,280,099
2. The Year in Review
2.1 Changes in the Humanitarian Situation
In 2004 the West Africa sub-region continued to experience the
impact of various complex emergencies and natural disasters. While
initial steps towards recovery took place in Liberia, Cote d'Ivoire
struggled with the implementation of the Linas Marcoussis Accord.
Both peace processes proved fragile, and large populations
continued to be displaced. Arms and combatants, as well as a number
of epidemics including Human Immune-Deficiency Virus/Acquired
Immune Deficiency Syndrome (HIV/AIDS), moved swiftly across the
region. Poor host communities that had experienced the erosion of
their traditional coping mechanisms remained over-burdened by
refugees and returning migrants, and already fragile basic social
services were weakened by the additional demands from these
population groups. In addition, locust swarms invaded Mauritania,
Senegal, Mali, Niger, Chad, Cape Verde and Burkina Faso, with
detrimental consequences for food security in the region. According
to Food and Agriculture Organization (FAO), this invasion is the
worst since 1987-89, and experts are warning of famine unless the
situation is not under control by November 2004. As a result of the
current locust invasion, cropping and grassland areas of the
Sahelian countries are infested, and damages to pasture cereals and
vegetable crops are becoming widespread.
In Cote d'Ivoire the peace process went through an erratic path,
with peaceful periods alternating with violent confrontations. This
trend was reflected in the 25 March demonstration in Abidjan, which
led to brutal acts of repression and the killings of some 120
civilians. Subsequently, seven political groups walked out from the
Government, a development that halted the political dialogue in
Cote d'Ivoire for five months. As a last attempt to reconcile the
parties, the Secretary-General of the United Nations, the President
of the African Union and the Chairman of Economic Community of West
African States (ECOWAS) organized an Extraordinary Summit in Accra
on 29-30 July 2004. After extensive talks with Government
representatives and reassurances from the international community,
the rebel movement Forces Nouvelles (FN) and the four main
opposition parties agreed to return to the government of national
reconciliation, hence giving a new chance to the long-delayed
process of disarmament, demobilization and rehabilitation (DDR),
which is now set to start by 15 October. However, the incapacity,
or the unwillingness, of the parties to abide by the political
commitments expressed in Accra III raises serious concerns for the
coming months, and one cannot rule out the possibility of sporadic
armed confrontations.
Liberia saw significant improvements in security, stability and
access following the departure of Charles Taylor in 2003, the
subsequent establishment of the United Nations Mission in Liberia
(UNMIL) on 1 October 2003, and the relatively successful
implementation of the DDR programme. A Transitional National
Government (TNG) was appointed in October 2003, under the
leadership of Chairman Bryant, to steer the country towards
elections in 2005. However, a climate of political instability and
relative insecurity remains in certain areas of the country. The
progressive deployment of UN peacekeeping forces has substantially
increased access to vulnerable groups, hence allowing humanitarian
actors to increase its efforts to meet the most critical needs.
However, new challenges are emerging with the imminent return of
hundreds of thousands of internally displaced persons (IDPs),
ex-combatants and refugees. Rehabilitation, reintegration and
reconstruction activities are therefore going to be central to the
future stability of the country.
These positive developments in Liberia are somewhat tempered by the
instability of the current political situation. Last August,
disputes over the leadership within the Liberians United for
Reconciliation and Democracy (LURD) triggered street violence in
Monrovia, forcing the UN peacekeeping mission to respond forcefully
and step up street patrols. Since the Disarmament, Demobilisation,
Rehabilitation and Reintegration (DDRR) programme began in late
2003, approximately 80,000 combatants have been disarmed, but
smaller groups of ex-fighters still require specific attention and
tailored interventions. Rehabilitation and reintegration efforts
are hampered by lack of funding, which could severely undermine the
peace process.
Voluntary repatriation to Sierra Leone was completed in June, and
the country is continuing its reconstruction efforts. The DDR
process was relatively successful, with a few exceptions regarding
the integration of female combatants. The Security Council
requested the drawdown of UN Peace Mission in Sierra Leone
(UNAMSIL) on the basis that the national security forces now have
the capacity and the competence to take over the responsibility for
ensuring national security and territorial integrity, particularly
along the border areas with Guinea and Liberia. Finally, the
reintegration of former fighters will continue to pose challenges
in a country with a fragile economy that offers few prospects for
young and unemployed people.
Guinea has been plagued by recent political instability and
economic fragility. In May 2004 the Prime Minister, Francois
Larceny Fall, who had previously rallied the support of the
international community and most of the political class,
unexpectedly resigned and went into exile after two months in
office. He later justified his actions in a letter addressed to the
Head of State and the public, explaining that his attempts to
address the political situation and foster economic reform had been
stalled by close followers of President Lansana Cont‚.
This resignation occurred as Guinea was experiencing the first
serious socio-economic impacts of the lack of dialogue with the
international community and the drastic reduction of international
aid that started two years ago. In the past year, living conditions
have worsened, acute monetary instability has set in, and the
prices of rice and fuel have increased. This situation has
triggered violent attacks on commercial food convoys and
warehouses, as well as streets demonstrations and strikes.
Numerous multilateral and bilateral attempts to resume dialogue
with the Government and deter tensions in a country that is the
cornerstone of regional stability have not yielded substantive
results yet. The UN and the European Union are therefore
contemplating specific measures such as rehabilitation projects and
DDR programmes for the most unstable area of the country, Guinea
ForestiŠre, which borders countries currently undergoing UN
peacekeeping operations (Sierra Leone, Liberia and Cote d'Ivoire).
In Guinea-Bissau the internal political situation seemed to have
stabilized after former President Kumba Yala was overthrown in the
coup of September 2003. During the legislative elections held in
March, the majority of votes went to the African Party for the
Independence of Guinea-Bissau and Cape Verde (PAIGC), which fought
for the independence of the country against Portugal. A National
Assembly and a transitional Government have now been installed. In
June, a report from the UN Secretary-General (UNSG) to the Security
Council concluded that the democratisation process in Guinea-Bissau
remained fragile and that ethnic imbalances within the military,
unpaid salary arrears for security forces as well as the poor
living conditions of former fighters and active militias continue
to be potentially destabilising factors.
In Nigeria interethnic riots between Christian Tarok farmers and
Muslim Fulani pastoralists resulted in the killing of approximately
600 people and the internal displacement of more than 57,000
individuals. The President of Nigeria requested assistance from the
Secretary-General of the United Nations to respond to the most
pressing humanitarian needs deriving from this crisis, and OCHA was
instrumental in coordinating assistance for IDPs. However, in view
of the simmering ethno-religious tensions and the risks for natural
and/or man-made disasters, the internal stability of the country
remains of concern. Individuals that enjoyed more power during
previous dictatorships may still hamper democratic progress.
Members of Groupe Salafiste pour la Predication et le Combat
(GSPC), a fundamentalist movement based in Algeria, were reported
to have withdrawn into Northern Niger and Mali after Algerian
authorities had taken measures to secure the southern part of
Algeria, which is mostly composed by desert and is characterized by
porous borders. The activities of the GPSC remain fluid and
uncontrollable, hence generating concern that the group could find
a favourable environment to entrench its radical and terrorist
activities among nomadic populations that are hard hit by abject
poverty and lack of economic opportunities. Furthermore, many
ex-Tuareg fighters from the rebellion of 1991-1996 have not fully
benefited from the DDR programmes of Mali and Niger. In response to
these threats, the US initiated the Pan-Sahelian Initiative (PSI),
which encompasses Mali, Niger, Mauritania and Burkina Faso.
However, recent confrontations in Gao (northern Mali) and three
coups attempts in Mauritania over the last 12 months indicate that
preserving stability in this part of the sub-region will depend
significantly on effective conflict prevention measures.
Pursuant to its commitment to restore sub-regional stability, the
Security Council undertook its second mission to West Africa in
less than a year. Sir Emyr Jones Parry, former United Kingdom
Ambassador to the Permanent Mission to the UN, headed the mission.
Members of the Security Council that participated in this mission
recognized the progress made in Liberia and Sierra Leone, but was
also alarmed by other recurrent tensions in countries such as Cote
d'Ivoire. Issues of concern to the mission included the collapse of
local economies, the setbacks on economic integration and the
unhindered movements of people and goods, the rise of criminal
activities, the accelerated recruitment of child soldiers, and the
growing number of women heading households despite having few
income opportunities, which partly explains the rapid expansion of
HIV/AIDS. The Security Council therefore recommended to United
Nations Office for West Africa (UNOWA) and the Office for the
Coordination of Humanitarian Affairs (OCHA) to undertake a
sub-regional consultation process to formulate and facilitate the
implementation of mechanisms to contain the further contamination
of this regional instability. For that purpose, UNOWA and OCHA are
now working together to develop an integrated cross-border strategy
that will pull together and put into action the knowledge,
experience and capacity of Governments, UN agencies, NGOs, donors
and civil society organizations. ...
2.2 Financial Overview
The West Africa Consolidated Inter-Agency Appeal for 2004
originally appealed for US$ 120.76 million. Following the Mid-Year
Review exercise, funding requirements were adjusted downward to US$
108.4 million and finally consolidated at US$ 97.26 million. As of
15 October 2004, based on contributions reported to OCHA, the West
Africa Appeal for 2004 raised US$ 71.8 million, or 73.2% of the
funding required (see Annex I).
Whereas the West Africa CAP for 2004 seemed relatively well funded,
it embedded a pronounced imbalance between sectors and agencies.
Food assistance accounted for 95% of the total funding, with the
World Food Programme (WFP) receiving 75.9% of its revised
requirements. However, only US$ 3.8 million out of the additional
US$ 8.9 million required for non-food projects were received, with
almost all funding going to the sector for Coordination and Support
Services (68%), in which OCHA covered 90% of its regional funding
needs. Generally, life-sustaining projects received the vast
majority of funding, while funds for prevention activities proved
to be scarce.
Sectors such as Agriculture, Health and Protection/Human
Rights/Rule of Law, which are key to conflict prevention and
post-conflict mitigation, only received an un-earmarked
contribution of US$ 650,000, which was split between three (3)
projects presented by the United Nations Children's Fund (UNICEF).
The very low level of funding response for these sectors undermines
the efforts of the humanitarian community to tackle the
cross-border effects of complex emergencies. It also limits efforts
to promote social cohesiveness between displaced populations and
host communities, preserve a hospitable and positive asylum in the
sub-region, and to strengthen prevention, preparedness and response
mechanisms at the regional level.
2.3 Lessons Learned
In early August 2004, a Consolidated Appeals Process (CAP) Workshop
was held in Dakar with participants from UN Agencies, NGOs,
inter-governmental organizations as well as donor countries active
in the sub-region. The workshop reviewed the experience of the West
Africa CAP for 2004 and marked the start of preparations for the
2005 CAP. Participants in the workshop reaffirmed the need for:
- Regional cooperation and regional approaches to address existing
and emerging humanitarian needs in the region;
- The use of the CAP formulation process as a way to address the
cross-border nature of humanitarian challenges highlighted in the
analysis of the regional context; and,
- Efforts to ensure that projects are regional in nature,
complementary to those undertaken in crisis countries, and tailored
to address the hidden needs in non-crisis countries affected by
complex emergencies.
Looking back at the strategic goals set forth in the West Africa
CAP for 2004, it is clear that progress has been made in using the
consolidated appeal to ensure appropriate food security needs and
meet some of the basic strategic coordination objectives. However,
much work remains in order to mobilize resources needed for:
- Developing a comprehensive sub-regional approach to protection,
including appropriate actions for children, women, youth at risk,
refugees, IDPs, third country nationals (TCNs), and returnees;
- Creating an environment conducive to sustainable peace in the
sub-region;
- Reducing vulnerability to food insecurity;
- Establishing sustainable, effective and coordinated humanitarian
responses for the sub-region that link transition, development and
self-sufficiency;
- Developing coordination mechanisms and monitoring mechanisms
that reflect roles and responsibilities of different actors.
Regarding the coordination of humanitarian action, participants at
the workshop recognized that stronger inter-agency planning and
response tools are needed at the sub-regional level. The workshop
also highlighted the need for individual agencies and organizations
to review their internal preparedness and response frameworks and
to actively participate in joint efforts to ensure that regional
issues are tackled in the most effective and efficient manner.
The establishment of the OCHA Regional Support Office for West
Africa in Dakar was recognized as a positive step towards greater
cohesiveness among humanitarian actors, because of the Office's
role in establishing regular consultation mechanisms and offering
facilities for stakeholders to rapidly meet and take
preventive/corrective actions whenever a situation warrants it.
Such inter-agency collaboration is reflected in the OCHA-led
process that led to the formulation of a Regional Protection
Strategy, which was later endorsed by all parties concerned with
the enhancement of the protection of civilians.
AfricaFocus Bulletin is an independent electronic publication
providing reposted commentary and analysis on African issues, with
a particular focus on U.S. and international policies. AfricaFocus
Bulletin is edited by William Minter.
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