Protection and Assistance to

Refugees and IDPs in Darfur

2006 SUPPLEMENTARY APPEAL

IDP boy, Krinding camp, West Darfur. UNHCR/H. Caux

March 2006

Introduction

ince the issuance of the UNHCR Global Appeal and the United Nations and Partners 2006 Work Plan for Sudan in late 2005, the overall situation in West Darfur has drastically changed. Security in many parts of Darfur has steadily deteriorated since September 2005, resulting in continued violence, widespread destruction of crops and livelihoods and repeated violations of human rights. The

Sudan-Chad border area is increasingly at the centre of the escalation in tensions with armed elements on both sides operating with impugnity. On 3 January 2006, the United Nations in Sudan raised the security phase of some areas in West Darfur from Phase III (relocation) to Phase IV (emergency operation). At the same time, new population movements from Chad to Darfur have been reported. By early March, 8,000 to 10,000 Chadians and Sudanese have gathered around the villages of Galu and Azaza, about 35 km northwest of El Geneina. A breakdown of their profile and origin has yet to be completed, but more arrivals from Chad to Darfur are expected in the months ahead. The impact of the change in the security phase on UNHCR operations has been significant: the number of UNHCR staff in the Phase IV area (including El Geneina) was reduced in order to keep UNHCR’s presence in line with the staff ceiling established by the UN System. While many staff have been relocated, with some sent temporarily to other operations in Sudan, others have been kept in Phase III areas of Darfur in order to maintain a capacity to adapt to the changing situation and respond to any emergencies/large-scale influxes from Chad. In view of the limited access to some areas and a reduced number of field staff, UNHCR has been compelled to down-size its operation in Darfur by almost half, while attempting to keep a certain level of operational flexibility. The opening of new field offices in Kulbus, Masteri, Beida and Foro Baranga has been suspended temporarily, while the presence in El Geneina, Zalingei, Mukjar and Nyala (South Darfur) are being maintained. The Habilla field office will be opened by April. While UNHCR had initially planned a 2006 programme amounting to USD 33 million, this Appeal presents a revised operational budget of USD 18.5 million which reflects UNHCR’s immediate needs in the areas of West Darfur where UNHCR remains operational. Should the situation change during the course of the year, UNHCR will immediately revise the programme and issue a new appeal accordingly. Mothers and children, Seliah camp, West Darfur. UNHCR/H. Caux

IDP women waiting for food distribution, Mastura village. West Darfur. UNHCR/H. Caux

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Background

he conflict in Darfur began in 2003. Despite a ceasefire signed in April 2004 and two peace protocols in November of that year, the crisis continues unabated. There are currently an estimated 200,000 Sudanese refugees in neighboring Chad and more than 1.7 million persons internally displaced within

Darfur itself, 657,000 in West Darfur where UNHCR has concentrated its work. Despite peace talks in Abuja and a full deployment of over 7,000 African Union (AU) troops, the overall security situation remains extremely volatile. A recent military build-up on either side of the border is further escalating tensions and increasing the risk of open conflict. New arrivals of Chadian asylum-seekers, together with Sudanese displaced, have recently been reported at Galu and Azaza in West Darfur, near the border. Their number is still unclear, and UNHCR and partners are assessing the situation. Current conditions are clearly not conducive to any large-scale return of IDPs or refugees. In 2005, however, UNHCR protection teams identified an estimated total of 20,000 persons who returned spontaneously to their villages from the Chad border area and from IDP camps within West Darfur. A series of community-based reintegration projects (CBRPs) in the sectors of water, health and education were launched to help sustain these returns. In 2006, UNHCR will continue to support those refugees/IDPs who have returned spontaneously so that their return is sustainable. However, large voluntary return is not expected at this stage. It was initially anticipated that there would be a successful Peace Agreement for Darfur during 2006. However, the ongoing talks in the Nigerian capital of Abuja do not show progress as had been expected. The delay continues to be a cause of concern, both among the affected population and humanitarian workers. A political solution is increasingly seen as the only means to end the conflict in Darfur and allow the population to regain a normal life.

IDP woman, Krinding camp, West Darfur. UNHCR/H. Caux

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Population of Concern The breakdown of population of concern/beneficiaries under the operation in West Darfur is shown below:

(As of Jan 2006)

Population

IDPs in West Darfur 657,000

Former IDPs returned to their villages 10,000

Sudanese refugees returned from Chad 10,000

Chadian refugees/asylum-seekers in West Darfur 5,000

TOTAL 682,000

In view of the prevailing insecurity in the region and the lack of progress in the peace talks in Abuja, the number of IDPs in West Darfur might increase further. The tension in eastern Chad has also heightened considerably and UNHCR is preparing for a possible major influx of a minimum of 10,000 Chadian asylum-seekers and the return of 80,000 Sudanese refugees from Chad to Darfur.

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Othash camp, South Darfur. UNHCR/H. Caux

Objectives

UNHCR in Darfur aims to achieve the following objectives in 2006: • Within operational limitations imposed by the security situation, make necessary

interventions and ensure that international standards of protection are met for all persons of concern, especially vulnerable individuals and victims of Sexual and Gender-Based Violence (SGBV). Develop new partnerships designed to reach the maximum number of persons of concern despite security limitations.

• Improve the ability of persons of concern to move freely and in safety, through advocacy,

stronger security mechanisms and confidence-building with authorities. • Strengthen community-based protection mechanisms in IDP camps, host communities and

villages of return. • Create a protective environment, preventing further displacement and involuntary returns. • Prepare for additional movements of Chadian asylum-seekers or returning Sudanese

refugees from Chad to Darfur. • Support refugees and IDPs who have returned spontaneously to West Darfur through

limited community-based projects, focusing on sectors of water/sanitation, education, health and community services.

IDPs, Othash camp, South Darfur. UNHCR/H. Caux

UNHCR team talking with the IDP leaders. UNHCR/H. Caux

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Activities

The operation in Darfur will continue to focus on protection and protection-related activities for refugees and IDPs. UNHCR will: • Co-ordinate the protection efforts among different actors in West Darfur. UNHCR will chair

the Protection Working Groups in El Geneina, Mukjar and Zalingei and support protection initiatives in places where UNHCR is not permanently present. UNHCR will encourage and support (to the extent possible) protection initiatives taken by NGO and UN partners.

• Continue its role in Camp Management Co-ordination and Protection in West Darfur

assumed during 2005. Initiate and co-ordinate training and meetings of all camp coordinators in West Darfur. Organize regular meetings among camp coordinators and support NGOs to identify issues of common concern and establish consistent strategies for dealing with such problems.

• Continue to focus on providing protection to women. Maintain the 33 women centres

already functioning in different IDP settlements and villages and, together with partners, establish additional centres where possible. Continue to take an active role in the SGBV working groups and find ways to address issues of prevention and response to SGBV.

• Work with children and the elderly to address their protection concerns. With partners,

increase the number of youth centres in IDP camps, thereby providing an avenue for children where their protection needs can be addressed.

• Continue to monitor return movements and ensure its voluntary nature. Address

protection issues affecting the potential for return using the Return Working Groups chaired by UNHCR in El Geneina, Zalingei and Mukjar, with the participation of UN agencies, NGOs and the assistance of AU as appropriate.

• Preposition non-food items in Darfur and map out a plan to mobilize other assistance to

support Chadian asylum-seekers or returning Sudanese refugees from Chad to Darfur. • Provide counseling and legal assistance to IDPs, including for court representation when

required. UNHCR will continue to work with local lawyers to establish a comprehensive legal aid network to ensure protection particularly in areas where UNHCR is not present.

• In view of the limited presence of UNHCR in Darfur, provide assistance at a limited scale,

in household items and sectors of water/sanitation/education/health/community services to IDPs and refugees who spontaneously return to their villages of origin in West Darfur so that their return is more sustainable.

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The United Nations programme in Sudan is set out in the 2006 UN Work Plan, to which UNHCR programme is party. It has been prepared in consultation with the Sudanese authorities at local, regional and national levels. UNHCR will implement its activities in Darfur in close collaboration and cooperation with the Government of Sudan, local and international NGOs, IOM and ICRC, as well as UN agencies and the UN Mission in Sudan (UNMIS).

UNHCR Presence

NHCR established an office in El Geneina in West Darfur in June 2004 and in Nyala, South Darfur in July 2004.

The area of Darfur is vast, with West Darfur alone being equal to the size of France. UNHCR staff have endeavored, despite difficulties, to cover this large area to reach many major settlements and camps that are considerably remote from El Geneina. Road conditions are very poor, and many locations become inaccessible during the rainy season. Logistics and security restrictions for traveling have been the main constraints limiting UNHCR’s actual presence in the remote areas. In view of the above, it was decided in 2005 that UNHCR would establish seven new offices in selected strategic locations in West Darfur. The objective was to expand UNHCR’s protection coverage by having access to remote areas of displacement and return and ensure a UN presence outside El Geneina. However, due initially to limited funding and later to security, only two field offices were opened in 2005, namely Zalingei (January) and Mukjar (August). The Kulbus field office was fully developed, but due to deteriorating security in the area, UNHCR cancelled its opening. In 2006, UNHCR had initially planned to continue with the establishment of new offices in Habilla, Kulbus, Foro Baranga, Beida and Masteri, but the prevailing security situation and the designation of security phase IV has led UNHCR to suspend the opening of all offices except Habilla which will open shortly. UNHCR staff visiting an IDP woman and her son, Krinding camp,

West Darfur. UNHCR/ H. Caux

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U UNHCR Presence:

Sub-Office: El Geneina (West Darfur) Field Offices: Nyala (South Darfur) Zalingei (West Darfur) Mukjar (West Darfur) Field Office planned in 2006: Habilla (West Darfur) Field Offices temporarily suspended: Masteri (West Darfur) Foro Baranga (W. Darfur) Beida (West Darfur) Kulbus (West Darfur)

Staff on the ground: International staff: 26 National staff: 51 TOTAL 77

Challenges

ecurity and access remain the major challenges in this operation. Armed clashes, banditry and attacks targeting civilians including IDPs continue to occur with increasing frequency. Humanitarian convoys are also targeted. Access to a large part of West Darfur is now restricted. Interventions and assistance become extremely difficult when direct access to beneficiaries is limited. Lack of security

and confidence in their own government are also the main obstacles for IDPs and refugees to return to their villages of origin. With the above challenges, UNHCR needs to ensure flexibility and adaptability in implementing its planned activities in this continuously changing situation. While the environment is highly volatile, quick and agile responses are required. Long distances and difficult road conditions, particularly during the rainy season where some areas become completely inaccessible, are the other constraints in programme delivery in this region. The plan to open new offices in remote but strategic locations was to alleviate these constraints that UNHCR field teams were facing on a daily basis. However, it is partly suspended temporarily due to security situation. The general lack of basic services and infrastructure present yet another obstacle to effective and efficient programme delivery. The possibility of local procurement is limited, and the cost of transport is high due to isolated locations within Darfur.

Aerial view of a village in West Darfur. UNHCR/N. Kawahara

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Achievements in 2005 • Expansion of presence through opening of new field offices: Increased activities and

interventions enhancing the protection of IDPs. As a result of presence, more than 150 field missions were conducted as of end December 2005.

• Village and area profiling through partner agencies: This allowed UNHCR and the

humanitarian community to have a good understanding of the overall situation in Darfur which resulted in protection interventions and collaborated assistance.

• CBRPs: Implemented in 125 villages for returned population and in some IDP settlements

to mitigate overcrowding. • Protection Working Groups (PWGs): UNHCR provided leadership and protection inputs to

the PWGs in El Geneina, Zalingei and Mukjar and supported protection initiatives in other areas in Darfur.

• Return Working Groups (RWGs): UNHCR initiated RWGs in El Geneina, Zalingei and Mukjar,

particularly to address issues of forced relocation and violation that could impede return process.

• Legal aid provided by UNHCR: A total of 399 cases were assisted in 2005, particularly in

Nyala (South Darfur). SGBV cases were supported, so that rape victims are not charged and convicted of adultery, or can successfully appeal that decision.

• Organized a colloquium with 20 lawyers in West Darfur with a view to establish a legal aid

network in West Darfur. • 11 youth centres established • 33 women’s centres established: To support IDP women and victims, survivors of SGBV.

These centres had an average daily attendance of 4,200 women in 2005. • Camp co-ordination: Developed knowledge through compiling of camp profiles and capacity

through partners training. • Research into property rights and traditional land use and conflict resolution mechanisms

commenced in co-operation with FAO. • Conducted cross-border meetings and monitoring with the UNHCR offices in Chad to

exchange information on both sides of the border and coordinate activities.

Building up the wall of a school, El Geneina, IDP women received sanitary material from UNHCR.

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West Darfur. Garsila camp, West Darfur. UNHCR/H. Caux

Budget Requirement for 2006 While UNHCR had initially planned a 2006 programme amounting to USD 33 million, this Appeal presents a revised operational budget of USD 18.5 million which reflects UNHCR’s immediate needs in the areas of West Darfur where UNHCR remains operational.

Activities and Services Amount in USD

Protection, Monitoring and Co-ordination 7,740,005

Community Services 1,450,240

Crop Production 200,000

Domestic Needs/Household Support 520,000

Forestry (Environment) 50,000

Health/Nutrition 20,000

Legal Assistance/Protection 3,759,260

Operational Support (to Agencies) 625,000

Sanitation 37,000

Shelter/ Other Infrastructure 267,500

Water (non-agricultural) 71,000

Total Operations 14,740,005

Support Costs (7%) (*) 1,031,800

Programme Support 2,764,620

Grand Total 18,536,425

(*) A 7% support cost has been added to the total operational requirements and will be recovered from each contribution to meet indirect support costs in UNHCR (Field and HQs).

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Funding Overview for 2005 The overall budget for UNHCR’s operations in Darfur in 2005 was USD 31,341,044. The following table lists the donors to UNHCR’s Darfur programme in order of the size of their contribution:

(USD)

United States of America 6,000,000

Germany 3,423,814

Japan 3,035,055

Spain 1,234,934

Norway 1,057,143

ECHO 980,392

United Kingdom 806,450

South Africa 50,541

Private donors 95,722

TOTAL 16,684,051

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