Consolidated Inter-Agency Appeal for Sudan 2002


UN Office for the Coordination of Humanitarian Affairs (OCHA)
November 26, 2001


I. SECTION ONE

A. EXECUTIVE SUMMARY

The 2002 Consolidated Appeal (CA) for the Sudan provides a framework for humanitarian assistance in the context of the continuing complex and protracted emergency in the country, as well as for acute emergencies which arise through specific outbreaks of armed conflict and natural disasters such as drought and floodss. The activities embodied in this document seek to address such emergency needs while promoting measures for longer-term sustainablesustainable livelihoods. TheThe Appeal aims to build on the strategic approach of previous years in the promotion of life-saving, life-sustaining, and peace-building activities.

Humanitarian assistance to the Sudan continues to be implemented against the backdrop of the on-goinglong-running civil war between the Government of the Sudan and the opposition Sudan People's Liberation Movement/Army (SPLM/A) and other movements. On-going armed conflict between the military forces and their allied militias, both in the south and in the transitional zone between the northern and southern parts of the country, continues to threaten already fragile coping mechanisms and livelihoods - within and among civilian communities.

The The armed conflict inarmed conflict in the country the country also continues to create widespread displacement of civilian populations, destroydestroy infrastructure, and obliterate assets such as livestock and crops. Agricultural and pastoral activities among farming communities are continually disrupted in the areas of conflict, including during the all-important planting and harvesting seasons. In these and other areas the vagaries of climate and weather impose further pressures through drought and flood, giving rise to tension and conflict through competition for scarce resources of food, water, and pasture for livestock.

In this context of continuing disruption to livelihoods of the civilian population both of civilian populations through both war and natural disasterss, basic issues of food security, health and nutrition, and protection remain prominent. The persistence of malnutrition among the very young and the elderly is of particular concern. Protection of and for beneficiaries, promotion of humanitarian principles in the implementation of humanitarian assistance, the promotion of human rights, and the importance of peace-building, areare priorities for the humanitarian programme.

The Appeal for 2002 is structured as before around three themes that are reflected throughout the programmes. These continue to recognise that in addition to addressing immediate needs, humanitarian assistance needs to be mindful of the enduring consequences of armed conflict and natural disaster, and to respond accordingly. These themes are as follows:


The Appeal also seeks to emphasize a selection of cross-cutting issues focusing on gender, HIV/AIDS, and capacity-building.

Projects under the Appeal are divided into eleven sectors: 1) Food; 2) Agriculture / Household Food Security; 3) Health and Nutrition; 4) Family Shelter and Relief Items;Shelter and Relief Items; 5) Water and Environmental Sanitation; 6) Education; 7) Protection, Human Rights and the Rule of Law; 8) Coordination and Support Services; 9) Security; 10) Mine Action; and and 11) Multi-Sectoral Programmes.

The Appeal includes 39 projects totaling US$ 194,502,863 from ten UN agencies and two non governmental organizations (NGOs) projectsNGOs. Projects are grouped per sector and per Agency/NGO, while the thematic articulation is clarified in the project submission.

B. THE YEAR IN REVIEW

a) Financial Overview

TheFinancial resources totaling totalling US$ 154,835,862 have been made available during 2001 (as atat 27 October 2001) under the auspices of the United Nations Consolidated Inter-Agency Appeal for the Sudan. TheThis figure is to compare with the total requirements were of US$ 251,970,846 as outlinedof US$ 251,970,846, as reflected in the original Appeal issued in November 2000 and four revisionsplus the additionalities of four Revisions issued during the course of the year 2001.

Sixty-one percent (61%) At the writing of this document, 61%of overall needs identified by the Appeal and its four Revisions were met in 2001. It is important to note, however, thathave been met for 2001. Notwithstanding this satisfactory overall figure, the funding disparities evident in 2000 between the food and the non-food sectors have persisted into 2001. Lack of funding impacted negatively continued in 2001. This gap continueson the effective implementation of a full, coherent, and balanced humanitarian programme for the Sudan, for which donors consistently express their support.expressed their formal support. Such fundamental areas of activity such such as household food security, nutrition, water/sanitation and education, as well as human rights and peace-building, have all suffered due to the shortage of a lack of adequate funding which in turn has impacted negatively on the strategic objective of moving vulnerable communities towards a cycle of recovery and rehabilitation.

Critical security support services for the safety and welfare of humanitarian workers and beneficiaries were inadequately supported. whileThe practice of relying on the generosity of ddonorsonors for annual subventions leads to uncertainties in the recruitment of personnel thereby inhibitingand inhibits longer-term staff planning. Of all areas of the humanitarian programme, security services should not depend on direct donor support. The operating environment in many of the working areas is problematic and often dangerous for both humanitarian workers and beneficiaries; the possibility of financingbeneficiaries. The possibility of financing security support from core UN funds should be explored should be explored.

Humanitarian coordination and other common services, such as programme coordination and logistics, continue to be poorly funded, sometimes with direct consequences on operational programmes. The rationalisation of such services including the introduction of cost recoveries impact directly on OLS NGO partners, some has a direct impact of which have curtailed activities due on NGO-OLS partners operating in rebel-controlled areas, which have in some cases had to curtail activities in the face of increased direct operating costs.

Non-food sector financial overview

For core activities in the non-food sector implemented mainly by UNICEF and partners in the areas of emergency preparedness and response, health and nutrition, education, water and sanitation, protection, human rights promotion, peace-building and common services, a total of US$ 29,777,164 was pledged against a requested requirement of US$ 90,989,895. This represents only 33% of requested funds.represents only 33% of funds requested.

Other Agencies such as the United Nations Centre for Human Settlements (UNCHS-Habitat), the United Nations Development Programme (UNDP), the United Nations Educational, Scientific and Cultural Organisation (UNESCO), the United Nations Population Fund (UNFPA), and World Health Organization (WHO) received very little of the funds requested for more modest projects in activities such as reconciliation between pastoralists and farmers, resettlement and rehabilitation for IDPs, disease outbreaks, and reproductive health (RH). Some of these activities were suspended due to adue to lack of funding, others were severely curtailed. Specific projects related to longer term IDP return or resettlement, one of the themes of the 2001 CA, were very poorly funded, to the extent that virtually no action was possible.

Food Security Sector financial overview

In contrast, and consistent with the pattern of the previous year, the provision of emergency food assistance by the World Food Programme (WFP) under the Food Security Sector to the Sudanese communities affected by war and natural disaster, was relatively well resourced. Of a total requested of US$ 160,980,951, 77 % or US$ 124,858,698 was provided (or 77% of requirements). Thus food aid continued to reach those vulnerable populations for which it was intended. Gaps in the "food pipeline"Even so, gaps in the so-called food pipeline in the early part of the year, however,year which slowed food deliveries and which in some particularly vulnerable areas, impacted adversely on malnutrition levels, emphasising the needemphasised the need for earlier and more timely commitments by donorsdonors to this activity.

The donor community supported the Food and Agriculture Organization (FAO) for critical life sustaining household food security programmes promoting self-reliance in the areas of agriculture, fisheries and livestock --livestock, including for a concerted effort to address rinderpest -- confront the scourge of Rinderpest - with only 34% of funding out of a modest total request of just over US$ 14 million.

b) Changes in the Humanitarian Situation

The humanitarian relief operation that has continued now for more than a decade, takes place in the midst of a civil war that has ragedraged on for twice as long. Without humanitarian assistance, it is expected that tens of thousands more would die, hundreds of thousands more would move. Operating in the midst of a civil war, humanitarian assistance has slowed down the deterioration in the conditions of living for the three million or so who are served by it.

Large "pockets"It is true that there remain large areas in the war-ravaged southern part of the country, which are not affected by war and have therefore not been as effected by the armed conflict as other areas. In such areas,which have therefore escaped the destruction of armed conflict. In such areas the communities are beginning to recover.coping and, to some extent, beginning to recover. Social indicators of quality of life throughout the Sudan, however are not encouraging, particularly infor the rural areas. For those areas currently affected by war and conflict, such as in Unity State and the western Upper Nile region, the Nuba Mountains, northern and western Bahr El Ghazal and East Equatoria, conditions and coping mechanisms for survival are deteriorating. Agricultural and pastoral activities among farming communities, including the all-important planting and harvesting cycles, are continually disrupted in the areas of conflict.

Military offensives during the course of the year, including by Government forces in the Nuba Mountains and by the SPLA in western Bahr El Ghazal, have displaced tens of thousands of civilians, some to Government-controlled areas and some to areas controlled by the SPLM/A. Conflict between militia groups allied to one side or the other, or even acting independently, continues to create chaos, disruption and displacement in the localities of the oil-producing areas in Unity State/western Upper Nile region, and most recently in eastern Upper Nile.

The humanitarian situation was also compounded during the year by drought and flood conditions in many parts of the country, both in areas controlled by the Government and in those controlled by the SPLM/A and other armed opposition groups. The Darfur and Kordofan regions of western Sudan, Red Sea Hills in the east, Bahr El Ghazal in the south-west, and East Equatoria in the southern part of the country, have all suffered and are suffering from the effects of prolonged drought.

c) Progress Made Towards Strategic Goals

The humanitarian operation in the Sudan, including Operation Lifeline Sudan (OLS) for the war-affected southern areas of the country (which includes areas under and out of Government control as well as areas controlled by armed opposition groups), continues to provide emergency support for over three million of the most vulnerable civilians affected by war and natural disasters. High risk groupsand natural disasters. Communities have benefited greatly fromwho might not otherwise have survived continue to do so because of these life-saving activities. Food insecurity and malnutrition have thus been mitigated.contained.

The trend of theEven so it is of deep concern that there has been an overall deterioration of the levels of nutrition is worrisome.throughout the country, both in Government-controlled areas and elsewhere. In areas under Government control, the national malnutrition rate (moderate plus severe) in children under-five rose from 18% in 1991 to 23% in 1999 FMoH Nutrition Report. Malnutrition rates seen in the Multiple Indicator Cluster Survey (MICS)in MICS 2000 are estimated atto be 19% in the northern states and 17% in the towns of Juba, Malakal and Wau in the south. However, these figures maskhide wide regional variations FMoH, CBS and UNICEF MICS 2000.. Malnutrition rates rose to 30% in Unity State ACF/UNICEF/SMoH Nutritional Survey Report, July 2000 in 2000 while rates for "under-fives" 2000. Malnutrition for under-five children is estimated atat 8.6% in South Darfur and 34% in Blue Nile State. The nutritional status of "under-fives" has remained more stable or improved in Government held areas of Bahr El Ghazal, Equatoria, Upper Nile and in Kassala and Darfur states. However the overall unstable food security situation in these war/drought affected areas remained fragile and emergency situations can lead to a dramatic rise in malnutrition.

In areas not under government control,rebel-controlled areas, malnutrition rates decreased steadily following the humanitarian response to the 1998 famine in Bahr El Ghazal, from 50% mid 1998 to 25% by end of 1998, to a further 7% by the end of 1999 Statistics from UNICEF Situation Analysis, 1999. However, beginning insince late 2000 and into 2001, malnutrition is on the rise in certain areas (principally in Upper Nile and Aweil South in Bahr El Ghazal) as a result of insecurity, difficult humanitarian access and an early hunger gap.

The combination of escalatingEscalating conflict, consequent displacement, drought, seasonal hunger gaps and poor medical care, are contributing factors to the figures cited above.all responsible to one extent or another. Meanwhile breaks in the WFP food pipeline have hindered that organisation's capacity to respond, and may even have led to a further decline in levels.

It is important to note that existingimportant to note that existing early warning mechanisms alerted the humanitarian community to impending disasters, resulting gave notice in key instances of disasters to come, with consequent timely action able to avert tragedy on a large scale. The drought in western Sudan is one such example. The UN together with NGO'sexample, with the UN and NGO communities working with the Government of the Sudan to cope with the effects of the drought in a coordinated and cohesive manner. For other particular, unforeseen emergencies such as displacement arising from mid-year military offensives in western Bahr El Ghazal, the UN and NGO's reacted NGOs reacted quickly to mobilise the resources required to addressaddress the displacement crisis, including the provision of transportation, food,the provision of transport, relief food, medical supplies, water and shelter.

Emergency response for other crisis situations resulting in displacement of populations, food insecurity and deterioration of already very fragile coping mechanisms in the SPLM/A-controlled areas of the Nuba Mountains and southern Blue Nile, has been less successful. The Government has been been reluctant to allow UN access to these areas for emergency relief purposes; the Un has thereforepurposes; as a result, the UN has not yet been able to reach and assist the population in a seeminglyassist in dealing with what seems to be an unfolding humanitarian crisis.

Moreover, Due to difficulties in gaining access to the Nuba Mountains, the UN has also not yet launchedit has not yet been possible to launch the proposed longer-term integrated programme of relief and rehabilitation in both GoS and SPLM/A-controlled areas of the Nuba Mountains. Progress has stalled on the issue of airquestion of the corridors of air access to the SPLM/A-controlled areas. Whereby the The Government continues wishes for the corridor to be operational throughto maintain that this must be effected via the GoS-controlled airport at nearby El Obeid; the SPLM/A calls forinsists on direct access from the UN/OLS operational and logistics base at Lokichoggio in northern Kenya.

Under-fundingUnder-funding of the non-food sector has hampered the strategic objectives of the last two Consolidated Appeals to promotewhich aim to promote life-sustaining activities to complement those focussing on life-saving activities.focusing on life-saving. As was the case for the previous year, very little in the way of systematic and consistent longer-term building of local capacities for recovery could be undertaken due to these funding restrictions few longer-term local capacity building was restrictions.

The protocols and agreements on cross-line corridors, beneficiary rights and security reached duringsecurity reached during previous meetings of the Technical Committee on Humanitarian Affairs (TCHA) were reviewed at the fourth meeting of the Committee in Geneva in November 2000. Prior to this meeting, the key agreements had been assembled in pocket were compiledbooklet form in both English and Arabic wereArabic, and are distributed on a continuing basis throughout the areas of the humanitarian operation. Despite these measuresNonetheless, progress in implementing these agreements has been slow, limitingwhich in turn has limited modes of delivery and cost-effectiveness. Efforts by the parties concerned - UN, Government of the Sudan, and SPLM/A - to achieve cross-line deliveries by road, rail or river in the past year, have not been successful. Insecurity along the proposed river and rail corridors and the presence of landmines on roads, are among the major impediments impediments to the achievement of cross-line movement, which among other things could ease the high costs of air deliveries.prohibitive costs of deliveries by air.

d) Lessons Learned

The humanitarian assistance operation cannot and should not be expected to function in the absence of - or in isolation from - political action. A negotiated and lasting peace settlement and a concentrated process of genuine reconciliation provide the fundamental and longer-term remedies for the chronic humanitarian needs confronting the Sudan, together with peace-building and conflict resolution at grassroots levels.

The implementation of humanitarian assistance activities should wherever possible seek to promote and support peace processes at all levels, without compromising the fundamental humanitarian assistance principles of impartiality and neutrality.

Full strategic and sectoral coordination among the UN and other humanitarian assistance actors is essential for optimum implementation of humanitarian assistance in the particular circumstances of the complex emergency in the Sudan.

ImplementationOptimum implementation of the humanitarian assistance programme also depends on the full cooperation of and collaboration with counterparts in the Government of the Sudan and the southern groups.opposition movements. The UN needs to continue to work to achieve this, consistent with fundamental humanitarian principles.

The continuing imbalance in funding patterns between the food and the non-food sectors is a fundamental constraint on the strategic objective of a balanced complement of life-saving, life-sustaining, and peace-building activities.

Humanitarian work must extend beyond life-saving activities to encourage and promoteto promote resiliency and recovery. This is a pre-requisite to breaking the cycle of food security crises and inevitable loss of innocent civilian lives.the resulting loss of innocent civilian lives.

The current one-year planning and funding cycle also constrains the transitionis also a constraint on capacity to move towards recovery.

Gender, human rights promotion and protection cut across all sectors of humanitarian work, and need to be actively promoted by all implementing agencies.

There remains a clear need for a coherent, consistent and pro-active public information effort on the part of the humanitarian community, to respond to critics, publicise achievements,challenge unjustifiable criticism, to publicise what is being achieved, and to draw attention to emerging humanitarian crises.

A continuing lacuna in mechanisms for the overall strategic monitoring and evaluation of the humanitarian programme in its entirety, inhibits a proper and considered appreciation of the broad impact of the programme.

Table I
Total Funding Requirements for the
2002 United Nations Consolidated Inter-Agency Appeal for Sudan
By Sector and Appealing Organisation

January-December 2002

SECTORS

REQUIREMENTS (US$)

Food

93,130,067

Agriculture

14,455,000

Health

28,938,508

Water and Sanitation

5,487,363

Family Shelter and Non-Food Items

2,505,550

Education

4,974,000

Protection, Human Rights and Rule of Law

16,960,128

Coordination and Support Services

6,577,887

Security

3,845,200

Mine Action

1,050,000

Multi -Sectoral

16,579,160

GRAND TOTAL

194,502,863

 

APPEALING ORGANISATIONS

REQUIREMENTS (US$)

Food and Agriculture Organizations

14,205,000

International Organization for Migration

565,000

Office For The Coordination Of Humanitarian Affairs

2,497,387

United Nations Centre for Human Settlements (Habitat)

6,361,350

United Nations Development Programme

2,254,628

United Nations Mine Action Service

320,000

United Nations Population Fund

2,287,478

United Nations High Commissioner for Refugees

11,707,887

United Nations Children's Fund

48,468,400

UN Agencies and NGOs

3,861,273

World Food Programme

93,190,097

World Health Organization

7,643,363

Non-Governmental Organisations

1,141,000

GRAND TOTAL

194,502,863

TABLE OF CONTENTS

I. SECTION ONE

A. EXECUTIVE SUMMARY
B. THE YEAR IN REVIEW


C. HUMANITARIAN CONTEXT
D. COMMON HUMANITARIAN ACTION PLAN

II. Section Two

A. FOOD

B. AGRICULTURE / HOUSEHOLD FOOD SECURITY

C. HEALTH

D. WATER AND ENVIRONMENTAL SANITATION

E. FAMILY SHELTER AND RELIEF ITEMS

F. EDUCATION

G. PROTECTION, HUMAN RIGHTS, RULE OF LAW

H. COORDINATION AND SUPPORT SERVICES

I. SECURITY

J. MINE ACTION

K. MULTI-SECTORAL

III. SECTION THREE

NGO PROFILES

Annex I. Donor Response to the 2001 Appeal

Annex II. International Federation of Red Cross and Red Crescent Societies

Annex III. INGO Activities by Region and Sectors - Existing (E) and Planned (P) (2001 - 2002)

Annex IV. NGO Projects Synopsis

Annex V. Abbreviations and Acronyms

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