UKRAINE Humanitarian Crises Analysis

UKRAINE Humanitarian Crises Analysis - 2015 1 January 2015 Each year, Sida conducts a humanitarian allocation exercise in which a large part of its humanitarian budget is allocated to emergencies worldwide. This allocation takes place in the beginning of the year as to ensure predictability for humanitarian organisations and to allow for best possible operational planning. In an effort to truly adhere to the humanitarian principles Sida bases its allocation decisions on a number of objective indicators of which the most important are related to the number of affected people, vulnerability of affected people and level of funding in previous years. One of the indicators is also related to forgotten crises in order to ensure sufficient funding also to low profile crises. Besides this initial allocation, another part of the humanitarian budget is set aside as an emergency reserve for sudden onset emergencies and deteriorating humanitarian situations. This reserve allows Sida to quickly allocate funding to any humanitarian situation throughout the year, including additional funding to Ukraine. 1. CRISIS OVERVIEW The unrest started on 21 November 2013 when the Ukrainian president at the time, Viktor Yanukovych, announced that Ukraine will abandon association plans for EU cooperation, and instead move towards closer collaboration with Russia. This was followed by demonstrations in Ukraine and clashes with security forces which turned violent in February 2014, in which approximately 80 people died within a few days. The Ukrainian Parliament voted on conducting new elections in May 2014 as a response to the demonstrations, and consequently removed Yanukovych from his position as President. Events in Crimea has displaced roughly 16,000 people from the Crimea peninsular. In April 2014, armed groups in Donbas region in the east of the country started taking control of governmental buildings and strategic sites, including Donetsk airport. Petro Poroschenko was elected president of Ukraine, and instructed military forces to oust the armed groups occupying Donetsk airport. Tension and armed violence have continued to occur in eastern Ukraine, with most of the military activities taking place in Donbas oblast. A ceasefire mutually declared between both parties in September, continues to be broken and the conflict in eastern Ukraine remains volatile to date. As of 9 January 2015, 4,800 people have been killed and 10,400 injured. 633,500 internally displaced persons (IDPs) have been displaced to various areas of Ukraine, and approximately 590,600 people have taken refuge in bordering countries to Ukraine. 1.1 Geographical areas and affected population The eastern part of Ukraine has been most affected by the armed violence to date, specifically in Donbas oblast which host both Luhansk and Donetsk. Both Luhansk and Donetsk are reported to be worst hit by the conflict as a result of armed groups gaining control of the two areas. From June 2014, the Ukrainian government has tried to regain control of areas with military means. The Crimea and its status, remains disputed between Ukraine and the Russian Federation. Internally displaced persons (IDPs) IDPs find themselves in vulnerable positions to various extents, depending on their socio-economic positions and social networks. Most of the IDPs have relocated in neighbouring oblasts, as well as in Donbas, to the main towns and cities. Due to the fear of losing property and livelihood, women and children have left their homes, while a large number of men have stayed in conflict affected areas, or in neighbouring cities to the conflict areas, in order to protect their property. Two thirds of adult IDPs consist of women. IDPs also move back-and-forth to secure their property from confiscation, assess the extent of the conflict or to visit relatives. Approximately 10 percent of the IDPs reside in collective centres, and the rest of the IDPs stay in the homes of family and friends, or in rented accommodation. The majority of the collective centres are summer retreats, and are not built for residents during the winter months. Reports are indicating an increased tension between IDPs and the host community. IDPs face stigma and negative stereotyping, leading to challenges when trying to find accommodation and employment. Such tension is noticeable when trying to integrate IDP children in already resource limited pre- and elementary schools. Some families have been unable to integrate and have returned to conflict areas due to discrimination and intolerance towards them. At the moment, the returns are not permanent, and the number of IDPs from eastern Ukraine is growing. Women, elderly, children, single-headed households and Romas The most vulnerable people include those considered vulnerable before the conflict started. These include elderly people, single headed households, people with special needs and other people relying on social benefits. As social

benefits such as retirement payment (and also salaries) have been discontinued due to the insecurity in the areas controlled by armed group, the humanitarian needs have intensified, and is expected to create more vulnerability, especially during winter. Furthermore, women, LGBTI, Romas, Crimean Tartars and Ukrainian Tartars belong to marginalised groups within Ukraine, and counts for some of the most vulnerable people due to discrimination faced when requesting humanitarian assistance. The majority of the Romas from eastern Ukraine have not registered as IDPs out of fear of persecution upon their return. Furthermore, about 40 percent of Romas do not have documentation, and face difficulties in accessing government health and social services. Crimean Tartars and other pro-ukrainians experience discrimination and violations in Crimea. There are reports of Crimean Tartars forcibly disappeared and gone missing. There are several reports indicating an increase in military activity, despite the mutually agreed ceasefire. The increase of armed violence in eastern Ukraine has resulted in a large number of displacement in Ukraine, as well as people displaced to neighbouring countries (mainly Russia) from. Displacement continues to date, with the most recent figure of 1,2 million displaced. Insecurity has been identified, in the UN led Strategic Response Plan (SRP), to be the main driver of the humanitarian crisis. The decision by the GoU, to withdraw all social benefits as well as banking services to people in areas controlled by armed groups in eastern Ukraine, is expected to have considerable consequences on the humanitarian needs in affected areas, especially for elderly people and already vulnerable groups who rely on social benefits. Even if most IDPs leave to escape the conflict, the numbers have also increased due to restrictions on access to social benefits and services, imposed by the GoU. Since the start of the conflict in Ukraine, the economy has become instable and weakened. This has resulted in inability of the government to provide social services, which in turn has led to increased vulnerability among the local population. Prices of goods, especially food, have increased dramatically, as well as unemployment. This has resulted in peoples purchasing ability drastically declining. These factors have affected the government s ability to respond to the humanitarian needs. Furthermore, the availability of coal, which is used extensively for energy in Ukraine, has decreased due to the conflict, as coal is mined in eastern Ukraine. Instead, Ukraine relies extensively on Russia for its energy supply. This resulted at one point in discontinuation of energy distribution from Russia due to unpaid notices by the Ukrainian government, thus leaving many people particularly in Donbas region without heating and electricity. 1.3 Risks and threats The conflict in Ukraine has intensified, with more people being forcibly displaced, and civilians killed. Since August 2014, the number of displaced people, both IDPs and refugees in neighbouring countries, has doubled. Reports indicate that the humanitarian situation is likely to deteriorate, as it is likely that the conflict will get worse during the coming months. Access to markets and livelihoods is expected to decrease due to rising prices and limited transportation system, affecting the most vulnerable negatively. The main risk for deterioration of the humanitarian situation is escalation of the armed violence, as well as limited humanitarian access to areas controlled by armed groups in Luhansk and Donetsk. The political turmoil with new governmental focal points recently installed may as well affect the outcome of the conflict. The Ukrainian government s limited capacity (restricted by bureaucracy, economic crisis and the conflict) to respond to the humanitarian needs and to provide basic social services and benefits to the most vulnerable people is likely to worsen the situation. The international humanitarian community has put pressure on the government to improve coordination and facilitation of delivery of humanitarian aid. The UN Resident Coordinator has decided to delay the local launch of the 2015 SRP for Ukraine in order to ensure that the government will fulfill its duties in accordance with international law and standards and meet its obligation to serve all conflict affected people regardless of their location in Ukraine. However, parts of the Ukraine SRP was included in the launch of the global SRP, and the delay does not hinder Sida to continue its plans for support. A generic risk in all countries with humanitarian needs is the risk of corruption. With general challenges in all societal pillars including law, order, stability and justice - the area of checks and balances also becomes fragile. Ukraine ranks on number 142 on Transparency Internationals Index for 2014. Strategic objectives identified in the Strategic Response Plan (SRP) The SRP includes three strategic objectives: 2

1) Respond to the protection needs of displaced and conflict-affected people, with due regard to international humanitarian norms and standards. 2) Provide life-saving assistance and ensure non-discriminatory access to quality essential services for displaced and other conflict-affected people, with emphasis on the most vulnerable. 3) Improve the access of displaced and conflict-affected people to high-impact early recovery activities with a focus on livelihoods opportunities, normalization of basic services, return and post-conflict reconciliation programming, with attention to reducing social inequalities. The SRP underlines the importance of protection of civilians. The SRP main focus is within the following sectors: Emergency Shelter and Non Food Item (NFI) depending on the location, the assistance may vary due to different needs in areas controlled by armed groups and government controlled areas. The main focus of activities is cash assistance, repairs of collective centres, house repairs, in-kind NFI and contingency, as well as permanent housing. Cash assistance activities are mainly planned for areas not directly affected by the conflict. Both debit cards and vouchers will be distributed by UNHCR to vulnerable IDPs. The focus on collective centres will include repair and winterization of facilities hosting IDPs. Lighter to medium repair on houses in government controlled areas, which have been affected by the conflict, will be conducted. Furthermore, blankets, clothes, beds and linen, jerry cans and kitchen sets will be distributed to target populations. Depending on the development of the conflict, this might be necessary for late autumn 2015 as well. Protection: The protection cluster will focus on protection monitoring in post/conflict areas, leading to evidence based protection response; target the most vulnerable IDPs and assist in registration of IDPs, child protection and legal services; strengthen state and civil society capacity to improve information management, community based intervention, child- and gender-based systems of advocacy etc.; advocate for the response and prevention of violations and violence; ensure protection mainstreaming and human rights-based approach and for it to be integrated in the humanitarian response; mechanism for accountability to affected populations. Health: The focus of the health cluster includes enhancing access to quality preventive and curative health services, as well as medication and health technology. The health sector also aims at providing information, monitoring of policy decision-making and to strengthen the laboratory capacities. The partners within the health sector will continue a close collaboration with the Ministry of Health, and coordinate with all relevant actors within the health departments. Food security and nutrition: The assistance will include both vouchers and distribution of food baskets. The food security and nutrition cluster primarily focuses on the Donbas oblast (Luhansk and Donetsk), Dnipropetrovsk, Kharkiv and Zaporizhzia. Recipient of the assistance will include elderly people, single headed households, chronically-ill, children and other vulnerable groups. The focus of targeted populations will be those who were part of the government s social safety net before the conflict. Other sectors that have been identified as essential in the SRP, are: Education with focus on ensuring access to quality education for all conflict affected children; provide psychosocial support in coping stress anger management etc. WASH with focus on supporting the GoU in ensuring that possible outbreaks of WASH related diseases are kept under control through access and use of adequate safe water and sanitation services. Coordination with focus on already existing structures and actors on local, regional, national and international level. The SRP focuses its activities mainly on IDPs from eastern Ukraine and Crimea, but will also include complementary activities in other areas of Ukraine, where local support is assessed as insufficient. Furthermore, the SRP will also consider gender gaps, as well as build capacity in humanitarian response and preparedness within the Ukrainian government and civil society. Gender inequality within Ukraine is significant, and is assessed to have consequences on the humanitarian response. Gender analysis is included in the SRP, which outlines a strategy to assure gender sensitivity and that projects address gender related issues. The SRP includes gender disaggregated data as a requirement, and gender analysis to be conducted within projects and programmes. The strategy also promotes inclusion of equal number of women and men, as well as marginalised groups, in decision making level forums. Due to more information surfacing on the extent of Sexual Gender Based Violence (SGBV) and Gender Based Violence (GBV), Sida sees a need to further strengthen the response towards SGBV and GBV. Furthermore, the gender analysis as well as programme focus of and projects within the SRP should address the vulnerable position that many women face as heads of households. Reports conclude that international humanitarian law (IHL) is not respected, and civilians have not been protected throughout the crises. Sida therefore sees a need for stronger emphasis on the respect of the IHL in eastern Ukraine, specifically on upholding the ceasefire and protection of civilians. Both assurance of sufficient inclusion of gender 3

aspects in projects and programmes, and respect of IHL should be addressed further by Sida in cooperation with partner organisations and within the international donor community. 2. IN COUNTRY HUMANITARIAN CAPACITIES 2.1. National and local Capacities and Constraints At the time of writing this HCA, the government of Ukraine has not established a governmental body or institution to take lead in the coordination of the humanitarian assistance within Ukraine. The international donor community has raised issues around Ukraine s ability to cope with the many humanitarian needs. The Ukrainian government has recently adopted a new IDP legislation, with the purpose of ensuring the right to basic social services in resettled areas, as well as non-discriminatory actions. Despite of the adoption of this new legislation, many IDPs experience discrimination and obstacles with regard to employment, starting businesses and renting accommodation. The Government of Ukraine officially tasked the Ministry of Social Policy (MoSP) to register IDPs, with the hope to achieve better coordination around registration. Reports reveal overloaded staff within MoSP as well as insufficient capacity to handle the great number of IDPs in Ukraine. 2.2. International Operational Capacities and Constraints Leadership and Coordination Few humanitarian organisations were present in Ukraine before the conflict started, but several organisations have attempted to initiate a response after the armed violence broke out, either through partner organisations or by establishing a country office. At the time of writing, OCHA has established an office in Kiev as well as a field office in Donetsk, and is in process of establishing a second field office in Luhansk. OCHA has had the primary role of coordination, and has to date established seven working clusters in Ukraine, activated in December, and includes several CSOs in the coordination. GoU has not yet established a national response department/team to respond to the humanitarian needs in Ukraine, which has been raised as concern by many humanitarian actors. The lack of a central coordination within the GoU has hampered a speedy and effective humanitarian response. The humanitarian community encourages the GoU to adopt a decree to enable humanitarian actors to respond effectively. Concerns relate specifically to complicated NGO registration requirements and tax legislation. Donors The main donors of humanitarian assistance are USA, ECHO, Germany, Sweden, the Central Emergency Response Fund (CERF), Canada, UK and Switzerland. Sweden was the fourth largest donor to the Preliminary Response Plan in Ukraine during 2014. The total contribution received for the Preliminary Response Plan (PRP) during 2014 was 31 MUSD (UN only), out of a total budget of 33,3 MUSD. Humanitarian support was also provided outside the PRP, and the total humanitarian support to Ukraine (including the PRP) during 2014 was estimated to 61,5 MUSD. 3. SIDA S HUMANITARIAN RESPONSE PLAN 3.1. Sidas role Earlier assistance and results: Sweden has through its embassy in Kiev, provided support to international organisations for humanitarian assistance during 2014. The support was regulated by a decision by the Swedish government in August 2014. The Embassy in their assessment prioritized support to Unicef, UNHCR, Save the Children and OCHA. As Sweden has not contributed with humanitarian support in Ukraine prior to 2014, Sida s humanitarian response plan is not based on results from previous year s assistance. Instead, Sida s humanitarian unit has followed similar recommendations and priorities as the Swedish Embassy identified during their appraisal in 2014, when assessing the humanitarian needs and proposing cooperation partners for 2015. Response Priorities 2015 Humanitarian Focus: NFI and emergency shelter: There is still a large number of people living in areas controlled by armed groups, who are assessed to be in need of both emergency shelter and NFIs. Further, approximately 10 percent of the IDPs elsewhere in Ukraine reside in collective centres. They have been assessed to be most vulnerable, and in need of NFIs and improved emergency shelter. Furthermore, it has been identified that there are large gaps in implementation of winterisation activities in Ukraine, covering the increasing needs of 4

the displaced population during the winter months. The SRP has identified that approximately 65,000 people are in need of winterization NFIs for the winter of 2014-2015. Sida s response priorities are in line with the focus of the SRP and include distribution of NFIs, cash vouchers and emergency shelter through quick fix repairs and winterisation of collective centres. Protection: Estimations suggest that 1,2 million people are in need of protection due to their vulnerable positions. Reports conclude that the IHL is not respected, and civilians, especially IDPS, lack protection as a consequence of the crises. There is an urgent need for protection measures. Sida will focus its support towards respect for IHL, as well as protection for women and children. Health: The health system was prior to the crisis in Ukraine already weak, and has continued to deteriorate. Approximately 1,37 million people are in need of medical assistance. There is a lack of medical equipment and drugs, such as vaccine and insulin. In areas controlled by armed groups, hospitals and health clinics have been damaged during the armed violence. Unofficial reports state that medical staff have reported lack of support and funding from the GoU, and have not receive any financial support in the last two months of 2014. Sida will prioritise humanitarian support ensuring access to primary health care for the most vulnerable people, provision of medical drugs and equipment, psychosocial support as well as immunization of children. Sida s humanitarian support is recommended to focus on eastern Ukraine, both within governmental controlled areas and areas controlled by armed groups. Due to limited access, majority of the support will be implemented in governmental controlled areas, but NRC and ICRC aim to target population within areas controlled by armed groups. Synergies with Development: Sida s humanitarian unit will continue its close cooperation with the Swedish Embassy in Ukraine, and further explore cooperation opportunities around synergies with development work. This could especially be the case in work on gender equality and vulnerability of women, as the gender related issues are socially and economically rooted in the Ukrainian social structure. The Swedish Embassy in Kiev has contributed to UNDPs recovery program in eastern Ukraine, which targets the areas that have been most affected by the conflict. The program aims to build and enhance the capacity of the local authorities to provide health, education and other social services. It focuses on reconstructing social structure and reconciliation. Partners All the partners and projects are in line with the draft SRP and Humanitarian Needs Overview (HNO) for 2015. United Nations High Commission for Refugees: UNHCR is assessed by Sida to be one of the main responders to the humanitarian needs in Ukraine. UNHCR is the lead in the Shelter/NFI and Protection clusters. Protection is prioritised both in the SRP and within Sida s humanitarian response plan. Proposed amount for UNHCR is 5 MSEK. Norwegian Refugee Council (NRC): NRC has received official registration in Ukraine and initiated its operations in December 2014. NRC focuses their project on winterization activities, both in governmental controlled areas, and areas controlled by armed groups. Proposed amount for NRC is 6 MSEK. International Committee of the Red Cross ICRC: The Swedish Embassy in Kiev did not contribute with support to ICRC as they were fully financed 2014. Both the Swedish Embassy in Kiev and Sida s humanitarian unit assess that ICRC is a relevant partner. ICRC will focus their activities on food distribution, NFIs, WASH, as well as to promote protection of civilians and respect for IHL. Proposed amount for ICRC is 8 MSEK. Unicef: Unicef is the lead in the WASH and Education clusters, but also focuses on health, protection and psychosocial support. The Swedish Embassy in Kiev signed an agreement with Unicef for support for WASH activities as well as psychosocial support. Proposed amount for Unicef is 7 MSEK. Save the Children: Save the Children received support from the Swedish Embassy in Kiev for winterization and NFI activities, as well as education and protection. Save the Children is one of the few strategic partners to Sida s humanitarian unit that had long operational experience in Ukraine before the current conflict. With the submitted proposal to the humanitarian unit, Save the Children intends to intensify their education and protection response in eastern Ukraine. Proposed amount for Save the Children is 5 MSEK. United Nations Office for the Coordination of Humanitarian Affairs: UN/OCHA is establishing field offices in Luhansk and Donetsk in order to improve the coordination among actors on site, as well as to enhance access to difficult areas. It is recommended to support OCHA s coordination activities. 5

Proposed allocation for OCHA is 2 MSEK. Sida s humanitarian unit has witnessed an increase in the volatility of the conflict, an increase of the humanitarian needs and related financial needs. The SRP has estimated an increase in budget from 33 MUSD in 2014, to 189 MUSD for 2015. Sida assess that there is a need to add support to above mentioned partner organisations. Further, Sida notes that there is discussion on the possibility to establish a Multi Donor Trust Fund (MDTF) for Ukraine, managed by United Nations Development Programme to respond to the humanitarian needs. The MDTF for Ukraine is proposed to be two folded, with funding for UN agencies implementation of projects and programs in Ukraine, and support to the GoU in its response to the humanitarian situation in the country. As this Pooled Fund has not been established Sida has not analysed its potential during the writing of this HCA. SIDA s HUMANITARIAN ASSISTANCE TO UKRAINE - 2015 Recommended partner for Sida Sector/focus of work (incl. integrated or Proposed amount support multi sectorial programming ) UNHCR Protection and shelter 5 000 000 NRC Winterization activities 6 000 000 ICRC Protection, health, NFIs, food assistance 8 000 000 Unicef Health, protection, education 7 000 000 Save the Children Education, protection 5 000 000 OCHA Coordination 2 000 000 TOTAL: 33 000 000 SOURCES The Assessment Capacities Project (ACAPS) reports in Ukraine, 2014, Global Appeal 2015, International Committee for the Red Cross Humanitarian Needs Overview 2015, UN/OCHA Ukraine Strategic Response Plan 2015, UN/OCHA Situiation Reports 2014 and 2015, Swedish Embassy in Kiev 6

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