EMERGENCY OPERATION CHAD

Transcription

1 EMERGENCY OPERATION CHAD Title: Assistance to Sudanese Refugees, Internally Displaced, IDP Host Communities and Refugee-Affected Local Populations in Eastern Chad Duration: 18 months (1 January June 2010) Number of Beneficiaries 1 : 787,000 WFP Food Tonnage: 163,430 mt WFP Food Cost: US$70,009,223 Total Cost to WFP: US$258,441,970 EXECUTIVE SUMMARY The refugee and internally-displaced people (IDP) crisis in eastern Chad results from the ongoing fighting and instability in the Darfur region of neighbouring Sudan, as well as internal insurgency carried out by Chadian rebel elements. Insecurity is expected to continue in this border region for the foreseeable future, barring a breakthrough in efforts to broker peace inside both Sudan and Chad, as well as a cessation of tensions between the two countries. There is fear of worsening insecurity and a resulting increase in population displacement. Political-military developments in the latter part of 2008 and early 2009 will determine the level of security in the region. Under these conditions, there is a need for continued assistance to a refugee population of 255,000 refugees in twelve camps, 188,000 IDPs located in 30 sites as well as vulnerable members of host communities affected by the refugee/idp crisis. The prolonged presence of these large refugee and internally displaced populations in a fragile sahelo-saharian environment further increases the strain on local agricultural, pasture, and water resources, thus resulting in communal and inter-ethnic tension. If not mitigated, tensions could fuel escalated inter-ethnic conflict in an already volatile area. This emergency operation (EMOP) therefore aims to address the basic needs of the Sudanese refugees along with the distinct needs of the IDPs and host populations through the provision of general food distribution supplementary feeding and support to therapeutic feeding for refugees and the provision of food-for-work (FFW), food-fortraining (FFT) assistance and school feeding for IDPs and host populations. The design of this operation takes into account the recommendations of the recently-conducted WFP/UNHCR joint assessment mission (JAM) of September 2008, the WFP vulnerability analysis and mapping (VAM) survey on food self-sufficiency among refugees, IDPs and host populations that was conducted in December 2007, as well as the July/August 2008 nutritional survey conducted in refugee camps. While limited access to land and non-agricultural incomegenerating activities has provided refugees and IDPs with some sources of livelihood, continued provision of food aid to both groups will be required to bridge nutritional gaps during the period of this EMOP. Local populations around the refugee camps and IDP sites will be targeted with FFW activities to mitigate the disruption brought about by the camps. In addition, the most vulnerable children and women from local communities near the camps will continue to benefit from supplementary and therapeutic feeding and from mother-child health and nutrition interventions. 1 Number of beneficiaries reflects planned total number of beneficiaries during the entire project duration of 18 months 1

2 Though significant returns of either refugees or IDPs are unlikely during 2009 due to prolonged volatility and insecurity, the EMOP proposes initial steps to support willing non-governmental organization (NGO) partners to promote and implement transitional initiatives. In this regard, some general food distribution (GFD) rations will be distributed to IDPs within the scope of FFW projects to develop social/environmental infrastructure. In this way, IDPs will fill some of their household food gap with the rations provided while, at the same time, learning organizational and technical lessons which can be applied when they eventually return to their villages of origin. In addition, host communities will benefit from long-term infrastructure developed by the projects. This EMOP, which is in line with the Chad United Nations Inter-Agency Contingency Plan, is designed to reflect the extreme insecurity of the border areas through the inclusion of modest contingency stocks to meet the needs of an estimated additional 43,800 IDPs, refugees and/or vulnerable hosts. There is a risk of irregular rainfall in the 2009/2010 agricultural season, which could result in the deterioration of food security. Thus WFP must be timely and agile in monitoring developments affecting vulnerabilities as well as ready to adopt a flexible response to targeting assistance to segments of the refugee, IDP and host community population (existing and new beneficiaries) as necessary. In line with WFP strategic objectives, the EMOP will be implemented to achieve Strategic Objectives 1 ( save lives and protect livelihoods in emergencies ), 3 ( restore and rebuild lives and livelihoods in post-conflict, post-disaster or transition situations ), and 4 ( reduce chronic hunger and malnutrition ) among Sudanese refugees, IDPs and targeted segments of the host population affected by the refugee and IDP crisis. This EMOP contributes to Millennium Development Goal (MDG) 1 eradicate extreme poverty and hunger, MDG 2 achieve universal primary education, MDG 4 reduce child mortality and MDG 5 improve maternal health. The transitional initiatives will be designed with NGO partners through a community development approach, to the extent that security and other social conditions permit. In this context, WFP will work with its partners to build into the project plans suitable sustainability and hand-over arrangements with concerned local stakeholders. 1. SITUATION ANALYSIS AND SCENARIOS (a) The overall context 1. The refugee and IDP crisis in eastern Chad has its roots in the ongoing civil war in the Darfur region of neighbouring Sudan, but also results from the increasingly complex interplay of political, security, ethnic and economic issues that plague the border area of the two countries. 2. The conflict that emerged in Darfur in early 2003 as a local rebel insurgency has since spilled over the border into Chad and broadened to include rebels against the Chadian 2

3 Government. Some 255,000 Darfuris have sought refuge across the border in Chad, while violence perpetrated against the local population by Chadian rebels many based in Sudan - has led to the internal displacement of some 188,000 Chadians. 3. The conflict in eastern Chad has upset a complex system of co-existence and economic interaction between agriculturalists and pastoralists of different origins in a fragile sahelo-saharian environment. A significant increase in the livestock population in Chad, largely due to progress achieved in combating tsetse fly and improvements in the veterinary sector, has also intensified the competition over land use, in some instances forcing farmers to cultivate in less-fertile areas. 4. The repulsed attack on N Djamena and coup attempt in February 2008 increased tension between the Government of Chad and the Government of Sudan and has widened the diplomatic breach between the two countries. Acts of violence perpetrated by outsiders in the eastern border areas of Chad perpetuate a high level of fear among local displaced populations, which inhibits them from returning to their villages. While the military peacekeeping force (EUFOR 2 ) presence in the vicinity of IDP sites and their host communities has provided a sense of security to those populations, its inability to patrol sufficiently the wider area encompassing the villages from where IDPs fled leaves the IDPs fearful of returning at this time. 5. In the meantime, violence has not diminished in the Darfur region of Sudan and a joint African Union/United Nations (AU/UN) peacekeeping force is still being developed. With no political/diplomatic progress being made for a negotiated peace, there is little reason to expect that the Sudanese refugees will be able to return home during In addition, it is widely feared that Sudanese rebel groups could infiltrate refugee camps for the purpose of recruiting fighters among the refugees. 6. There are particular protection issues for female refugees and IDPs. Women devote nearly four hours every other day to gather firewood, exposing them to danger and prompting nascent efforts to provide fuel-efficient stoves to help mitigate this concern. Refugee and IDP women face a particular risk for HIV transmission as a result of rape at the hands of bandits and armed elements, whose mobility and habits make them potential carriers. HIV prevalence in Chad is 3.9 percent, with the prevalence higher among women. Prevalence in the eastern regions is around 1.3 percent. (b) The food security and nutrition situation Food availability 7. The 2008 rains have been favourable and the outlook for the harvest is encouraging according to IDP beneficiaries, local authorities and partner organizations that were interviewed during the joint assessment mission (JAM) conducted in September This trend, along with a continued flow of food aid to refugees and IDPs, should ensure adequate food availability in the eastern region through at least the first half of This improved food availability should facilitate the sharing of resources to some extent 2 EUFOR is the European Union Force, in this case a temporary military deployment in Chad and the Central African Republic. 3

4 between host communities and IDPs, and between refugee-affected local populations and refugees, thereby helping to minimize tensions and conflicts. Livelihoods and household food access 8. Agro-pastoralism is the predominant livelihood in eastern Chad, with agriculture dominating in the southern areas and livestock rearing dominating in the north. The south-eastern part of Chad is traditionally a surplus grain-producing area with significant production of vegetables and cash crops such as sesame and groundnuts. Trade is also an important source of income for women who dominate the small produce trade in village markets, while men engage in larger-scale cross-border trade. Markets inside the refugee camps have generally eclipsed traditional village markets owing to the size of the refugee population in relation to the host population, as well as the number of refugees with trading skills. 9. The doubling of population and increase in livestock in many affected border areas has had a negative impact on the environment and may ultimately compromise the future livestock and agricultural income of the local population. The collection of firewood, wood for construction poles, and straw for roofing is an important source of income for IDPs and refugees, yet these resources are being exhausted at increasing distances from population centres. 10. Only between 18 and 35 percent of refugee and IDP households, respectively, reported having access to land for cultivation in 2007 (varying according to camp and site). Of those who obtained land to cultivate, 95 percent of refugees and 90 percent of IDPs reported that harvests (gathered in October and November) would only satisfy three months or less of their food needs. Only 1 percent of refugee and IDP farmers in the north and 3-8 percent to the south expected full self-sufficiency in grain from the 2007 harvest. 3 With favourable rains in 2008, grain harvests may last for up to four months. 4 Competition for land is strong, resulting in rent being charged (reported to be as high as FCFA 5 20,000 per hectare 6 ). This price is generally paid in kind from the harvest, reducing the net amount of food available for household consumption. 11. Most recent reports from the JAM show that in reaction to shortages of land and higher rental costs, more IDP households are sending male family members temporarily back to plant in their villages of origin in response to perceived improved security during the rainy season, though the exact percentage this represents has not been quantified. 12. Livestock, a common source of food, income and investment for rural dwellers is possessed by very few refugees and IDPs. Among refugees, 22 percent have goats and 12 percent cows; among IDP households, the figures are 8.6 percent have goats and Surveys on food self-sufficiency of Sudanese refugees, IDPs and host populations in eastern Chad. WFP Vulnerability Analysis and Mapping Unit. December, Based on responses during the 2008 JAM from IDPs who have planted. 5 FCFA Franc Communauté Financière Africaine. United Nations November exchange rate 2008 FCFA507: US$1 6 Idem 4

5 percent have cows. 7 In virtually no cases do livestock provide for the full livelihood need of households. 13. Refugees carry out various types of income-generating activities (IGAs) in an attempt to support their livelihoods. The three most cited income sources are: paid day labour (38 percent of households), petty commerce (15 percent), and the sale of firewood (13 percent). 8 While insufficient information is available to quantify the income generated, surveys show that households expend nearly 40 percent of their income on the purchase of extra basic food and complementary food items such as dried fish, canned meat, vegetables, spices and tea. A significant amount goes toward grain milling. 9 It is clear that refugees are far from self-sufficient and that they remain dependent on outside resources. 14. Similarly, IDPs also have some revenue from IGAs, though their sources are more varied compared to those of refugees. Paid day labour is the most cited source (nearly 30 percent), with sale of firewood (15 percent), sale of agricultural produce (15 percent) and petty commerce (14 percent) being the other sources. 10 Surveys have not been able to quantify the revenue generated from such activities, so it is difficult to evaluate the impact that IGAs play in the livelihoods of IDPs or to establish the livelihoods gap. 15. While host population livelihoods are stronger than those of refugees and IDPs, surveys still show significant levels of food insecurity. Only 20 percent of host community families produce sufficient grain to cover 9 months consumption; forty percent can only cover three months. 11 The prolonged presence of large populations of refugees and IDPs, often greatly exceeding the local host population, is adversely affecting the livelihood of host populations. (c) Scenarios 16. For the planning purposes of this EMOP, it is assumed that there will be no major change in the Sudanese refugee population within Chad. Despite the worsening insecurity and recurrent ration cuts for IDPs in Darfur, there has been no recent significant influx of Sudanese refugees into Chad. At the same time, worsening relations between the Government of Chad and Government of Sudan, along with serious obstacles to the successful implementation of the Darfur Peace Agreement, do not bode well for the repatriation of the Sudanese refugees in the foreseeable future. 17. Continued insecurity of the border area between Chad and Sudan, where an insufficient presence of state and traditional authorities has allowed increased banditry and interethnic conflict, will compel IDPs to remain in their displacement sites, awaiting signs of peace and stability. The economic burden on already-stretched host populations will continue and tensions are unlikely to diminish between sedentary and nomadic populations. 7 Surveys on food self-sufficiency of Sudanese refugees, IDPs and host populations in eastern Chad. WFP Vulnerability Analysis and Mapping Unit. December, Idem 9 Refugee respondents at various camps to the 2008 JAM 10 Idem 11 Idem. 5

6 18. It is widely expected that with the end of rains in October, hostilities will be renewed during the final months of the year or in early 2009 between Chadian rebel groups and the Chadian army. Unless there is a clear outcome which is not considered likely IDPs will not return to their villages of origin. Should the scale, severity and duration of fighting prove significant, additional populations may be forced to move to the relative safety of towns and villages patrolled by EUFOR. 19. Consequently, this EMOP includes a contingency element to cover the needs of additional displaced persons and affected host populations in line with the Chad United Nations Inter-Agency Contingency Plan. However, a serious conflict crisis once the rainy season ends in October/November could generate displacement and food insecurity that exceeds the contingency resources contemplated. 2. POLICIES, CAPACITIES AND ACTIONS OF THE GOVERNMENT AND OTHERS (a) Policies, capacities and actions of the government 20. The National Commission for Assistance to Refugees (CNAR) is the government body responsible for the coordination of assistance to refugees. CNAR is supported by the Office of the United Nations High Commissioner for Refugees (UNHCR) for registration and coordination activities in the camps. UNHCR provides the organization with equipment and financial support to maintain security. However, the implementation capacity of CNAR is very weak. The Government of Chad opposes the creation of camps for the internally displaced and continues to support an approach that integrates IDPs as much as possible into local host communities. (b) Policies, capacities and actions of other major actors 21. The principal humanitarian actors involved in food security include WFP, UNHCR, the Food and Agriculture Organization of the United Nations (FAO), United Nations Children s Fund (UNICEF), International Committee of the Red Cross (ICRC) and 24 national and international non-governmental organizations (NGOs). The implementation capacity of national NGOs is very weak. 22. WFP and UNHCR carry out annual JAMs with representatives of the Government of Chad, concerned donors and cooperating partners to evaluate the evolving situation and needs of their emergency programme target populations, and to refine strategies for their effective support. 23. GTZ 12 has been investigating the viability of fuel-efficient stoves that could be promoted to try to slow down wood cutting. Little progress has been made during the last year in getting fuel-efficient stoves into the homes of refugees and IDPs: UNHCR has been facing stiff funding constraints so that neither it nor NGO partners could count on the required funding for planning, community organizing, training and providing materials at 12 Gesellschaft für Technische Zusammenarbeit (German Agency for Technical Cooperation) 6

7 the required scale - more than 87,000 stoves required for full coverage (future action in this regard is in paragraph 40 below). 24. Cooperative for Assistance and Relief Everywhere (CARE) and OXFAM/GB are working in coordination with UNHCR to design and plan more sustainable solutions to the water needs of the refugee camps. (c) Coordination 25. Inter-agency coordination mechanisms have been established in line with the humanitarian community s global policy of the cluster approach designed to enhance the setting of standards to ensure reliable needs assessments and improve response capacity in nine specific humanitarian activities: WFP is the lead agency for logistics; UNHCR is responsible for emergency shelter, protection and camp coordination and management; the World Health Organization (WHO) is responsible for health; and UNICEF is responsible for nutrition, water, hygiene and sanitation, and common data services. In Chad, common security telecommunications services are provided by UNHCR. The ICRC also plays an important role in the registration of IDPs and the provision of various non-food items. FAO provides seeds and tools. In addition, WFP coordinates food assistance, UNHCR provides overall coordination for assistance to refugees, the Office for the Coordination of Humanitarian Affairs (OCHA) coordinates IDP assistance, and FAO takes the lead in agricultural sector. 26. Coordination meetings take place in N Djamena and Abeche on a regular basis as well as at refugee camps and IDP sites. 3. OBJECTIVES OF WFP ASSISTANCE 27. This EMOP is aligned to Strategic Objective (SO) 1 save lives and protect livelihoods in emergencies), SO3 restore and rebuild lives and livelihoods in post-conflict, postdisaster or transition situations, and SO4 reduce chronic hunger and malnutrition. The specific objectives are as follows: To save lives of Sudanese refugees and Chadian IDPs and contribute to the reduction of acute malnutrition caused by shocks to below emergency levels in eastern Chad (SO1). To protect livelihoods and enhance self-reliance in emergencies and early recovery (SO1). To support the return of IDPs to their villages of origin in eastern Chad and refugees to their native country of Sudan through food and nutrition assistance (SO3). To support the re-establishment of livelihoods, food and nutrition security of IDPs and host populations affected by shocks in eastern Chad (SO3). 7

8 To increase the level of education of IDPs and host populations by improving access to primary education and basic nutrition and health through food and nutrition assistance (SO4). To meet the food and nutrition needs of those affected by HIV/AIDS and other chronic illnesses (SO4). 4. BENEFICIARIES AND TARGETING Refugees 28. Approximately 255,000 refugees will be targeted for food aid assistance under this EMOP based on camp registries maintained by UNHCR. Maintenance of the registries is a continual process, involving registration of new or spontaneous arrivals and distinguishing refugees from the local population. Accuracy of statistics is complicated because significant numbers of refugees particularly male refugees leave the camps for periods. The basic caseload of eligible refugees has been agreed between WFP and UNHCR. A major re-verification exercise planned by UNHCR and its partners should be completed by the first quarter of WFP and UNHCR de-register refugees who fail to collect their ration at consecutive food aid distributions. In addition, the WFP Abeche sub-office in Chad coordinates and shares information about cross-border movements of refugees with the WFP office in El Geneina, Sudan. IDPs ,000 IDPs will receive food aid during the EMOP period, the vast majority residing in Dar Sila and Assoungha, where 13 and 11 sites respectively, are presently located. Assistance to small pockets in Djourouf Al Ahmar (one site) and Bahr Azoum (five sites) is also part of the plan. Recipients will be targeted and prioritized according to their selfsufficiency in grains, as revealed by VAM assessments, official crop assessments and household livelihoods surveys conducted on a regular or ad-hoc basis by NGOs. 30. Considering evidence that most IDPs will likely be able to cover up to four months of their food needs from their own cultivation/harvest as well as IGAs, eight monthly general rations of 2,100 kcal/day/person will be distributed during 2009 between March and October. Four similar distributions will be made during the first semester of To the extent possible, WFP will work closely with NGO partners to plan and organize up to four months of food-for-work (FFW) activities with IDPs during the dry season. FFW schemes will focus on establishing soil and water conservation infrastructure, reforestation and road rehabilitation of longer-term value to local livelihoods. WFP s and partners organizational, technical and financial capacities will be the determining factors in how much FFW is implemented. During the rainy/planting season, GFD will: a) sustain adequate nutrition commensurate with the labour needed for cultivation; b) ensure that farmers do not consume grain that is normally saved for seed (food for assets/seed protection); and c) sustain adequate family nutrition during the traditional hungry period prior to harvest. 8

9 Local Populations 32. This EMOP will target vulnerable segments of the local host population that have been affected by the refugee and IDP crises through FFW and food-for-training (FFT) activities that will provide 1,800 kcal/day/person for a family of up to five persons. Emergency food security assessments by the VAM unit will identify the villages to be assisted and among the beneficiaries will be: female-headed households, households with aged, handicapped and sick dependents (especially those living with HIV/AIDS), and those without adequate productive capacity in relation to the number of dependents. During four months of 2009 and three months in the first semester of 2010, 29,200 workers (representing as many households) will participate in FFW while 800 persons, mostly women (also representing their households), will participate in FFT. Families with members able to participate in FFW will undertake soil and water conservation activities. FFT will focus on those unable to participate in FFW with training on HIV/AIDS awareness, hygiene, peace education (with UNHCR) and parent-teacher association activities. Planning, organization and implementation will be carried out by NGO partners which are familiar with the beneficiary community and which have the requisite technical and management capacity to implement projects designed according to the particular needs of each community. Cross-cutting Assistance (i.e. for refugees, IDPs and host populations) 33. Malnourished children as well as pregnant/lactating women from among the refugee, IDP and host populations will be targeted to receive supplemental assistance within the scope of general mother-and-child health and nutrition (MCHN), supplementary feeding centres and support to therapeutic feeding centres. During the project, a projected 46,000 moderately-malnourished children and 14,000 severely-malnourished children will pass through supplementary and therapeutic feeding centres, respectively. 13 Approximately 35,000 pregnant and lactating women will participate in MCHN programmes that include a health training component. Similarly targeted segments of the host and IDP population living in the vicinity of the camps will also have access to these programmes according to need. 34. Forced displacement impedes children s access to education. Within the scope of emergency school feeding, 88,000 rations will be distributed in schools serving host community and IDP children in the regions of Ouaddai in partnership with the NGO Feed the Children. Some 30,000 pupils are expected to come from IDP families and 58,000 from host communities. To encourage families to send their daughters to school so that at least 50 percent of primary school pupils are girls, an incentive take-home food package will be provided to 5,000 girls who attend school at the cours moyen 1 (CM1) and cours moyen 2 (CM2) levels. 14 This corresponds to the ages when girls enrolment and attendance become more problematic; it is consistent with the food-for-education component ( support to primary education ) of the current WFP country programme. WFP will partner with UNICEF, UNHCR and FAO, who will fund the 13 Note: Figures are for total number of children admitted into the programmes. The category numbers cited in Table 1, below, have factored out population segments participating in multiple programmes under the EMOP to avoid double-counting of beneficiaries. 14 CM1 and CM2 correspond to the fourth and fifth years of primary school. 9

10 building/rehabilitation of school infrastructure as well as the provision of essential equipment, teaching materials and non-food items (NFIs). Table 1. Number of Beneficiaries ACTIVITIES Total Beneficiaries Male Female Total 2009 General Food Distribution (Refugees) 108, , ,000 General Food Distribution/Seed Protection/FFW (IDPs) 86, , ,000 Nutrition Support / MCHN ,132 29,132 Nutrition Support / Supplementary Feeding 16 17,500 17,500 35,000 Nutrition Support / Therapeutic Feeding 17 4,853 4,853 9,706 Emergency School Feeding (on-site feeding) 44,000 44,000 88,000 Emergency School Feeding (girl s incentive THR) 5,000 5,000 Food-For-Work/Food-For-Training (Host Community Crisis- Affected Populations) 81,300 68, ,000 Contingency 19,710 24,090 43, General Food Distribution (Refugees) 110, , ,000 General Food Distribution/Seed Protection/FFW (IDPs) 86, , ,000 Nutrition Support / MCHN 0 20,808 20,808 Nutrition Support / Supplementary Feeding 7,500 7,500 15,000 Nutritional Support/Therapeutic Feeding 2,561 2,561 5,122 Emergency School Feeding 52,500 52, ,000 Emergency School Feeding (girl s incentive THR) 5,000 5,000 Food-For-Work/Food-For-Training (Host Community Crisis- Affected Populations) 81,300 68, ,000 Contingency 19,710 24,090 43,800 Entire project TOTAL * 364, , ,193 * The total is not necessarily the sum of all activities because some beneficiaries receive rations in multiple activities; hence, they are counted only once in the total. 5. NUTRITIONAL CONSIDERATIONS AND RATIONS Food utilization and nutritional situation 35. A food consumption survey conducted in late shows the fragility of the quantity, quality and variety of nutritional intake among all segments of the population in eastern Chad. On the basis of a dietary diversity survey method, refugee, IDP and host community households report acceptable average consumption levels that only reach 42 percent, 41 percent and 44 percent respectively. Of most concern is the fact that poor consumptions levels stand at 22 percent, 33 percent and 17 percent respectively. 15 Targeting pregnant women and lactating mothers. 16 Targeting children under-5 weight/height between percent of median. 17 Targeting children under-5 - weight/height below 70 percent of median, and/or oedema reported. 18 Surveys on food self-sufficiency of Sudanese refugees, IDPs and host populations in eastern Chad. WFP Vulnerability Analysis and Mapping Unit. December,

11 The fact that IDPs fare worse than refugees is due to refugees having more regular monthly rations whereas IDP assistance has proven to be much more limited and irregular, and that IDPs livelihoods capacity, while more varied than that of refugees, is still very fragile. 36. Nutritional surveys are conducted regularly among refugees, less so in IDP sites and host communities. The most recent surveys for each population group reveal the following levels of global acute malnutrition and severe malnutrition for children under-5: Condition Refugees 19 IDPs 20 Host Population 21 Global Acute Malnutrition 12.3% 20% 17.6% Severe Acute Malnutrition 0.8% 5% 3.6% 37. It should be noted that the statistics are not strictly comparable due to differences in the timing and methodologies of the three studies. Nevertheless, the statistics indicate that IDPs and host populations food security and livelihoods are very fragile. Regular food aid and health/hygiene services provided to refugees may have contributed to a relatively better, though still problematic, nutritional situation. Table 2. Food basket composition and energy value per activity ACTIVITIES Commodities ( kcal or grams/person/day) Kcal Cereal Pulses Oil CSB Salt Sugar Total General Food Distribution Refugees 2, General Food Distribution-Seed Protection/FFW IDPs 2, Nutrition Support / Supp. Feeding 1, Nutrition Support / MCHN 1, Nutrition Support / Therapeutic Feeding FFW/FFT (Host Community Crisis- 14 1, Affected Populations) Emergency School Feeding (onsite) Emergency School Feeding (Girl s incentive take-home ration) Contingency Plan (10% of GFD) 2, UNHCR/WFP/UNICEF/NGOs; June/August, WHO/NGOs; May/June, Idem. 11

12 38. Sorghum or millet are requested to fulfil the grain element of the food ration in line with refugee, IDP and host community preferences expressed to the recent JAM. Table 3. Food requirements per commodity per activity Average Commodities (mt) ACTIVITIES Daily caseload # Days Cereals Pulses Oils CSB Salt Sugar Total 2009 General Food Distribution Refugees 250, ,000 4,500 2,250 4, ,350 58,050 General Food Distribution-Seed Protection/FFW IDPs 188, ,560 2,256 1,128 2, ,103 Nutrition Support / Supplementary Feeding 7, Nutrition Support / MCHN (inc. 535 TFC Caretakers) 12, , ,326 Nutrition Support / Therapeutic Feeding FFW/FFT (Host Community Crisis-Affected Populations) 150, , ,000 Emergency School Feeding (On-site feeding) 88, , ,534 Emergency School Feeding (Girl s incentive THR) 5, Contingency 43, , ,988 TOTAL 81,623 7,844 4,410 9, , , General Food Distribution Refugees 255, ,950 2,295 1,148 2, ,607 General Food Distribution-Seed Protection/FFW IDPs 188, ,280 1, , ,551 Nutrition Support / Supplementary Feeding 5, Nutrition Support / MCHN (inc. 535 TFC Caretakers) 12, Nutrition Support / Therapeutic Feeding FFW/FFT (Host Community- Crisis Affected Pop.) 150, , ,500 Emergency School Feeding (Onsite feeding) 105, , ,268 Emergency School Feeding (Girl s incentive THR) 5, Contingency 43, , ,492 TOTAL 43,406 4,042 2,364 4, ,444 56,487 Entire Project TOTAL 125,029 11,886 6,774 14,456 1,163 4, ,430 Estimated carryover req. 26,068 1,209 1,303 3, ,274 33,871 Net Requirement 98,961 10,677 5,471 11, , ,559 12

13 6. IMPLEMENTATION ARRANGEMENTS 39. Participation: Refugee committees are operational in all of the refugee camps and women are active participants in these committees. WFP will ensure that women comprise at least 50 percent of the membership of these committees and 50 percent of the executive decision-making positions. In all cases where women are present in refugee households, they are the ones registered as food entitlement holders to collect the family ration or designate someone to do so. UNHCR and CNAR are jointly responsible for security during the monthly food distributions. 40. While little progress has been made toward putting in place fuel-efficient stoves among refugee and IDP populations, WFP will continue to advocate among humanitarian partners for comprehensive planning of viable solutions. In order to begin rehabilitating lands degraded due to firewood collection, WFP will work in coordination with UNHCR, FAO, concerned government authorities and international NGO partners to design, plan, organize and implement FFW projects with host community and IDP populations. FFW projects will plant trees and construct soil and water conservation infrastructure (such as water catchment pans near wadis and bunding) and will be vetted by local project review committees to ensure proper environmental practices. 41. Partners: Distribution of WFP general food rations in the refugee camps will be carried out by UNHCR cooperating partners with supervision and monitoring carried out by WFP food aid monitors and the NGO partners concerned. 42. Supplementary and therapeutic feeding and MCHN programmes in the camps, IDP sites and their surrounding host communities will be carried out by UNHCR s partners. In the case of support to therapeutic feeding, appropriate food for phase I feeding of severely malnourished children will be supplied by UNICEF while WFP food aid will be used in phase II feeding, as well as for GFD rations to accompanying parents who are required to be away from their homes from days during their children s treatment. 43. To the extent possible, WFP will continue to work with cooperating partners to incorporate HIV/AIDS awareness and prevention education into both MCHN training and more general health training that also target men. 44. Non-food inputs: The most essential non-food inputs needed to complement the WFP ration and combat malnutrition in the refugee camps are a reliable supply of water and adequate sanitation infrastructure (particularly latrines). Continuing previous arrangements, these will be provided by UNICEF with coordination and support provided by UNHCR. Essential medical services will be provided by international NGOs. 45. NGOs will assist the refugee population in the collection of firewood for cooking fuel, but more support is needed. NGOs train beneficiaries in techniques to reduce environmental damage, such as the selection of dead wood, and sometimes transport refugees to reduce the intensity of firewood collection near the camps. Women often sell some of the firewood provided by the NGOs to purchase essential non-food items such as soap. 13

14 46. WFP and concerned United Nations agencies and NGO partners will monitor IDP and host community vulnerabilities. On the basis of identified needs, appropriate non-food support to those most vulnerable will be sought and delivered by partner organizations. To the extent possible, these will be programmed and supplied in a framework of community-based solutions to minimize risks of dependency. The elderly, infirm/handicapped, households headed by women, and people living with HIV will be targeted. 47. Food aid strategy: The main components of the proposed EMOP are as follows: General food distributions to the existing refugee caseload in the twelve camps. General food distributions to IDPs in 30 sites to promote seed protection from current harvests. Where feasible, some GFD rations may be distributed to IDPs through FFW projects managed by NGO partners: the purpose is to bridge the food self-sufficiency gap that IDPs presently face while responding to the willingness of IDPs to participate in productive investment in social/environmental infrastructure. Under no circumstances will FFW and GFD be duplicated among the same beneficiary households at the same time. FFW activities with vulnerable segments of local populations affected by the refugee and IDP situation will support social infrastructure involving soil and water conservation, forestation and road rehabilitation. Supplementary feeding and support to therapeutic feeding for vulnerable children and MCHN activities with a training component for women. These activities will be community-based and will be open to all host population, refugee and IDP women and children who meet the criteria. Emergency school feeding for IDP children whose education has been interrupted by dislocation, as well as host community children in emergency regions. In order to address an unacceptable gender gap (approximately 21.5 percent according to recent data), and in accordance with WFP s Enhanced Commitments to Women (ECW) II.2, take-home rations (THR) will be provided within the scope of the emergency school feeding as a way of encouraging the attendance of girls at school The first focus of the food aid strategy is to monitor closely the livelihoods and level of food self-sufficiency among refugees and IDPs, along with vulnerable segments of the host population. Food self-sufficiency, within the scope of a broader livelihoods approach, will be documented and assessed through the post-distribution monitoring (PDM) system which is already established in each of the refugee camps, and will be extended to IDP and FFW sites. The WFP VAM unit will work with NGOs to take into account their on-going household livelihoods survey systems so as to fine-tune PDM scope and methods and to make them mutually supportive. Based on the observed differences in food self-sufficiency, WFP, in agreement with OCHA and partner organizations, may gradually adjust the general food rations or provide those rations to IDPs through FFW. However, given the political and security prospects, reduced food aid 22 Additional incentives in the form of take-home food rations will be provided to girls (the same applies to boys if they are the disadvantaged) if there is a 15-percent or larger gender gap. 14

15 rations are not contemplated during this EMOP. Continued favourable harvests would help families to advance gradually toward food self-sufficiency, thus improving the nutritional status of children and pregnant women. Under this scenario, the EMOP anticipates a reduction of beneficiaries in supplementary and therapeutic feeding centres and MCHN in A second focus of the food aid strategy is to address the problem of high milling costs facing beneficiaries, which effectively cuts the amount of food a beneficiary actually takes home. To offset the effects of milling, the grain portion of the ration package for GFD will be increased to 500 grams/person/day (a 17 percent adjustment). Meanwhile, WFP will work with UNHCR and NGO partners to identify cost-effective milling technologies and management options in order to preclude beneficiaries from incurring high milling costs or at least to bring down the cost of milling to the lowest possible level. WFP is prepared to procure approximately 50 mills for targeted allocation to refugee camps in support of a management strategy to be prepared by UNHCR and its partners. Also, 20 percent of the cereal component will be imported and distributed as grain flour for emergency school feeding. 50. A third focus of the food aid strategy is to mitigate environmental damage from high concentrations of refugee and displaced populations which harm the environment, out of necessity, by cutting firewood for personal use and for sale. This is also a growing source of inter-ethnic/inter-communal tensions over rights to essential and increasingly scarce resources. FFW activities designed to address reforestation along with soil and water conservation could be supported to initiate a rehabilitation process (i.e. retention/filtration pans along wadis; bunding on slight slopes; or forestation using demi lunes ). The longer-term infrastructure and its benefits, which will accrue in the host community well after displaced populations have returned to their villages of origin, may be used as a means of easing the sense of burden, calming tensions and promoting continued solidarity with the plight of the refugees/displaced on the part of the host community. 51. Finally, under the prevailing situation of uncertainty and volatility on several fronts, the effectiveness of the response will depend on WFP s ability to provide assistance flexibly, where and when it is needed most. The foundation of this will be WFP s timely and agile monitoring of developments affecting vulnerabilities, which will allow WFP the operational flexibility to prioritize resources to those who most need them, when they need them. Pressures may be felt on the programme s food stocks as well as on human and logistics resources. Flexibility may require WFP to quickly solicit and allocate additional support from donors for expanded operations. Logistics arrangements 52. WFP will continue to utilize the two transport corridors through Cameroon and Libya which have been in operation during the existing EMOP ( ) to bring food aid into Chad. Through real-time rigorous port and corridor monitoring, WFP will channel deliveries to the two ports to take advantage of port and truck transport capacities, and to avoid bottlenecks as they occur. This will enable WFP to move supplies to their required extended delivery points (EDPs) throughout eastern Chad in the most expeditious and cost-effective manner. 15

16 53. Commodity Movement Processing and Analysis System (COMPAS) stations in the field will track and report on commodity movements, identifying bottlenecks and pipeline gaps. Timely and rigorous tracking serve to maximize efficiency in a difficult logistics system, providing logisticians with information required to overcome pipeline breaks and to ensure proper accountability. 54. One of the key logistics constraints is that all national or main access roads are officially closed to traffic from the end of June till mid-october during the rainy season. Food must therefore reach Chad by May in order to allow for pre-positioning of adequate stocks at all extended delivery points. 55. Fifteen EDPs are in place, with a total storage capacity of 40,650 mt. This installed capacity is adequate to store more than five months of full rations. This enhanced storage capacity will be sufficient to accommodate the aforementioned pre-positioned commodities. 56. The overland cost component of the land transport, storage and handling (LTSH) rate remains relatively high on account of the long and difficult journey facing truckers. The cost of transport has soared as a result of high fuel costs. Renewed spikes in fuel prices can have a significant impact on budgets and cause temporary transport blockages/slowdowns. The exchange value of the United States dollar has an effect on transport costs as a weak dollar has also contributed to high transport costs. Although the dollar gained strength in the final quarter of 2008, its future course will be a factor in the increase or decrease of logistical costs. 57. The project is complemented by Special Operation WFP Humanitarian Air Services in Chad, SO Fleet augmentation and logistics cluster which includes implementation of a United Nations trucking fleet, and SO Emergency telecommunications cluster roll-out. 7. PERFORMANCE MONITORING 58. Food basket monitoring and post-distribution monitoring will be carried out regularly as the cornerstones of the EMOP performance monitoring and targeting systems. 59. The country office has developed a Result Based Management (RBM) toolkit specifically tailored to WFP operations in Chad. Concerned programme staff have been trained while monitoring the EMOP implementation. The Monitoring and Evaluation (M&E) matrix included in the toolkit specifies how the various types of field data are to be collected, the frequency of collection and who will collect the data. Distribution and post-distribution monitoring in refugee camps and IDP sites will be carried out in collaboration with UNHCR and its cooperating partners. The nutritional status of children under-5 will be monitored primarily through data collected in the supplementary and therapeutic feeding centres, including monthly screening data and bi-annual surveys conducted by medical NGOs. Rapid food security assessments will be conducted once-a-year by the VAM unit to assess progress toward self-reliance among refugees and IDPs. Similarly, the performance of emergency school feeding will be monitored and documented by WFP field staff, the implementing NGOs and the Ministry of Education s school feeding unit. 16

17 60. The review of monitoring data from nutrition surveys, food security assessments and PDM will be an integral function of the M&E unit, which will ensure that all this data is captured in a database that will serve to generate a variety of reports for programme and management staff. The information that emerges will be evaluated against the established RBM targets/indicators so as to form the basis for adjustments to strategy, targeting or implementation. The information and evaluation findings will be shared with all field offices on a regular basis. 8. HANDOVER STRATEGY 61. The continued critical security situation in Darfur and a continuing hostile relationship between the Government of Chad and the Government of Sudan do not offer many options for an overall stabilization of the situation. Consequently, UNHCR does not foresee a repatriation of refugees in 2009, barring a diplomatic breakthrough. While the nutritional situation and food self-sufficiency levels seem to have improved somewhat, levels of malnutrition remain unacceptably high and neither refugees, IDPs nor vulnerable members of the host community are able to produce enough or buy enough food to meet their basic needs year-round. 62. The 2008 JAM has found that encouraging numbers of IDP households are sending members back to their villages of origin to cultivate during the rainy season. While these are temporary and apply only to those relatively close to displacement sites - villages closest to the Sudanese border are still considered too dangerous - their success along with developments in the future security situation will be assessed for signs that might favour more permanent returns. The most likely scenario is that the overall security situation will at least allow FFW projects to be organized and implemented increasingly further away from IDP sites and some refugee host communities. In principle, a transition from free distribution to FFW should be undertaken as a beneficial step toward greater self-reliance and an eventual return. The IDP communities, NGO partners and WFP alike will gain from the organizational knowledge and experience gained from implementing FFW. Workers will become familiarized with what can be done to establish social and productive infrastructure in their villages of origin and how to organize it. For the host communities, infrastructure put in place with food for work could be viewed as some compensation for their hospitality and solidarity. The projects will be designed with NGO partners within a community development approach, to the extent that security and other social conditions permit. To that effect, WFP will work with its partners to build into the project sustainability and hand-over arrangements with concerned local stakeholders. 63. The Ministry of Education remains a key partner in emergency school feeding so as to ensure that participating schools in Ouaddai region can be re-integrated into the regular national program when the security situation permits. 17

18 9. SECURITY CONSIDERATIONS 64. The United Nations security phase in September 2008 is Phase III. Measures have already been taken under the previous EMOP to be 99 percent compliant with the Minimum Operating Security Standards (MOSS) and 90 percent compliant with Minimum Security Telecommunications Standards (MISTS). In terms of MISTS compliance, it is not considered feasible to establish round-the-clock radio operation in the field offices. All private staff residences are considered security compliant. 10. RECOMMENDATION 65. The emergency operation Assistance to Sudanese Refugees, Internally Displaced, IDPs and Host Community Crisis-Affected Populations in Eastern Chad in favour of 787,000 beneficiaries, at a total WFP cost of US$258,441,970, is recommended for joint approval by the Executive Director of WFP and the Director General of FAO. APPROVAL Josette Sheeran Executive Director WFP Date: Jacques Diouf Director-General FAO Date: 18