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Special Humanitarian Coordinator's One-Year Report
"Local residents mentioned that the sound of airplanes overhead once brought a fear of coming bombs, but now is welcomed as announcing new shipments of food or other relief aid."
USAID Assistant Administrator Roger Winter, June 2002
Positive changes are coming in Sudan, driven by strategic and sustained U.S. engagement. USAID, working with the State Department, has emerged as a leader in the international community in pressing for peace, delivering relief aid, and laying the social and economic groundwork for a sustainable future. On May 3, 2001, President Bush announced the appointment of USAID Administrator Andrew S. Natsios as the Special Humanitarian Coordinator (SHC) for Sudan. The SHC's mandate consists of increasing stability in war-affected areas, reforming Operation Lifeline Sudan and other assistance delivery mechanisms, coordinating U.S. inter-agency humanitarian response, managing external relations, and focusing international attention on human rights abuses.
To support USAID's intensified focus on Sudan, the SHC established the Sudan Task Force, which reports to Roger Winter, Assistant Administrator for the Bureau of Democracy, Conflict, and Humanitarian Assistance (DCHA). The Task Force supports the SHC by coordinating the Sudan-related activities of USAID's programmatic units, including the Africa Bureau, Office of U.S. Foreign Disaster Assistance (OFDA) and Office of Food for Peace (FFP); linking USAID to the State Department Sudan Programs Group; and developing the sustained domestic and international relationships necessary to achieve U.S. humanitarian goals.
This report documents the successes achieved in these areas to date by the SHC, and highlights several challenges USAID will continue to address in the future.
Increased stability in war-affected areas
Conflict affects regions of southern Sudan to varying degrees. Fighting between the Government of Sudan (GoS) and the Sudan People's Liberation Army (SPLA) continues to create instability and population displacement in northern Bahr el Ghazal, parts of Upper Nile (especially around the oil fields in Western Upper Nile), and Southern Blue Nile. On the other hand, southern Bahr el Ghazal has been stable since 1998, and most of Western Equatoria has not seen conflict for a decade. Taking into consideration the varying regional circumstances, the SHC is implementing assistance programs to address both the emergency and long-term needs of war-affected populations.
- Increased development assistance to opposition areas: During the SHC's first trip to Sudan in July 2001, southerners were clear in expressing their desire to move beyond relief to self-reliance. The SHC responded with two major programs designed to lay the groundwork for sustainable development in a peaceful future. These programs, jointly valued at $42.5 million over five years, are for basic education (supporting primary and secondary schools and teacher training) and agriculture (training and micro-finance). USAID has expedited these programs so that implementation will begin this fiscal year. Along with these new initiatives, USAID is expanding its existing programs providing local economic stimulus, building local governmental capacity, and strengthening judicial systems.
- Increased humanitarian assistance: USAID has increased its non-food relief aid level this year to respond to emergency needs in conflict areas, and continues to support basic health and food security programs throughout southern Sudan. Food aid levels remain similar to 2001. In northern Sudan, USAID is continuing a program providing drought relief.
Smooth internal U.S. Government coordination
Those familiar with Sudan understand that the provision of humanitarian and development assistance can reinforce the peace process, and vice versa. The SHC works to coordinate the activities of the U.S. Government in Sudan concerning operational and policy issues, so that progress on the diplomatic track leads to practical and tangible benefits to communities, thereby further reducing conflict. The close collaboration between the State Department and USAID in Sudan presents a useful model through which the two entities can advance U.S. policy in other troublespots around the world.
- Nuba Mountains: One prime example of close USAID-State Department coordination is the Nuba Mountains, where intense conflict and total bans on access by the GoS threatened to create a humanitarian disaster. In July 2001, the SHC began intense negotiations with the GoS for humanitarian access to opposition areas of Nuba. The GoS gradually agreed to U.S. demands, authorizing a relief flight that delivered eight tons of wheat in August. The U.S. was then able to negotiate a delivery of 2,000 tons of food by the World Food Program in November, saving countless lives. In December, Special Envoy Danforth and the State Department were able to parlay USAID's humanitarian initiative into a formal Nuba Mountains cease-fire, signed by the warring parties in January. This has created the opportunity for a broad recovery and rehabilitation program in the region. Although not without problems, the cease-fire has facilitated greatly increased international assistance, greater security, and much optimism. Many Sudanese in other areas have expressed to us the hope that the U.S. can bring to their regions the same success it achieved in the Nuba Mountains.
- Slavery, abductions and forced servitude: A second example of interagency cooperation relates to the fight against slavery in Sudan. USAID and the State Department worked jointly to lead and facilitate the research of an international Commission of Eminent Persons from the United States, Canada, Italy, the United Kingdom, Norway, and France in spring 2002 to investigate the causes, extent of, and solutions to slavery, abductions, and forced servitude in Sudan. (Their findings can be reviewed at www.state.gov/p/af/rls/rpt/10445.htm.) USAID is also designing programs to add substance to the State Department's anti-slavery advocacy. Bringing greater understanding and reconciliation between southern Dinka victims and northern Baggara aggressors, these programs include support for grazing rights agreements, "trade not raid" economic links, and cultural exchanges.
Reform of Operation Lifeline Sudan and other mechanisms
To people desperate for relief aid, the power to control outside access is the power over of life and death. The Operation Lifeline Sudan (OLS) regime was established by the GoS, SPLM, and the United Nations to open new areas of southern Sudan to humanitarian assistance. However, the GoS has consistently used its control over flight clearances under OLS for strategic and military advantage, shutting off many areas from easy access and thereby resulting in the quiet and hidden deaths of countless southerners. The SHC has made the improvement of assistance delivery mechanisms one of his central priorities and is exploring new ways to provide critical aid, both inside and outside of existing frameworks.
- Improved humanitarian access through OLS: The SHC is engaging other donors and the UN in a sustained effort to gain improved negotiated access to southern Sudan, and has commissioned a report to recommend additional steps which can be taken by the U.S. and other actors to improve OLS. USAID staff met with other donors and the UN in June and July to further discuss reforming the flight clearance procedures. Leaders of USAID and the State Department advocate frequently for immediate improvement in OLS access through demarches to the GoS, press releases, and testimony before the U.S. Congress.
- Building the capacity of non-OLS NGOs: Not willing to sacrifice Sudanese lives while waiting on finalization of OLS reforms, the SHC and USAID support relief programs outside of OLS to fulfill the emergency needs of otherwise unserved villages and displaced groups. One area with particularly acute needs, but which is mostly isolated from OLS support, is Western Upper Nile. USAID is supporting two organizations outside the restrictive OLS framework to bring lifesaving food and supplies to that region. The percentage of USAID disaster assistance provided via non-OLS organizations has grown from 13 percent in 1998 to 45 percent in 2001 (not including food).
Better coordination with other donors
Many allies share the U.S. view that the status quo in Sudan is unacceptable. The SHC emphasizes that concerted international action will have a greater impact in establishing a future peace than the unilateral actions of one country. As a result, the U.S. has begun engaging the UN and the donor community more frequently and at higher levels. USAID Assistant Administrator Roger Winter and the Sudan Task Force have traveled frequently to Geneva, Brussels, Khartoum, Nairobi, and New York to ensure coordination and consensus.
- Shift in donor views of U.S. policy: Since the appointment of the SHC, the views of European donor countries toward U.S. humanitarian policy have shifted favorably. Some donors had considered the U.S. humanitarian approach to Sudan in the 1990s, which benefitted only southern war-affected populations, to be unbalanced. Over the past year, the SHC worked to reaffirm the neutrality of U.S. humanitarian assistance. USAID diverted a ship at sea to bring needed U.S. food aid to drought-affected northern Sudan and has implemented a variety of drought relief projects in the north, to complement aid provided in the south.
- Increase in programmatic coordination among donors: The OLS International Advisory Committee has been revived through senior-level U.S. involvement after years of stagnation. This international forum now deals with more operational and technical issues than ever before, and enjoys a higher level of representation. The healthy rebirth of this group will make possible greater international collaboration and coordination on a range of key issues in Sudan.
External Coordination and Advocacy
Because of the high level of interest in Sudan by U.S. constituency groups and Congress, the SHC has taken many steps to keep them informed. USAID leaders and the Sudan Task Force meet and communicate regularly with NGOs, the advocacy community and Congressional staff in order to gather and provide information on the pressing topics of the day.
- Public information dissemination: Just a year ago, NGOs and advocacy groups were frustrated by an inability to easily obtain reliable information of U.S. activities and approaches to Sudan. Rumors and misinformation were rampant. The Sudan Task Force is leading the effort to alleviate this problem. The Task Force serves as a direct link to outside groups, offering them accurate information and acting as a clearinghouse for inquiries. The USAID Sudan Website (www.usaid.gov/about/sudan) was created to update the public on the latest news and events.
- Congressional education and communication: Sudan Task Force members have provided regular one-on-one and group briefings for Congressional staff on humanitarian issues. USAID Assistant Administrator Roger Winter has also held regular briefings on Capitol Hill.
Increased attention on human rights abuses
The conflict in Sudan is rife with vicious atrocities. For example, alarming statistics from non-governmental organizations show that in the month of June 2002, there were more instances of civilian bombings than in any month over the last two years. USAID wants to bring these human rights abuses to light for the American public and the international community.
- Shining a spotlight: The SHC has made public statements to raise awareness, including a landmark speech at the Holocaust Memorial last October which highlighted the sad fact that unspeakable crimes still occur all too often even in modern times. The USAID Sudan website displays updated information on recent bombings, slavery and abductions, and other atrocities. Congressional outreach keeps representatives informed as well.
Looking Forward
The recent Machakos Protocol between the GoS and SPLM offers a cautioned hope for peace in Sudan. The SHC is ready to take advantage of the new opportunities afforded by this peace initiative, but is prepared to redouble assistance and peace advocacy efforts if the plan falters. In the coming months, USAID activities in Sudan are likely to include:
- Initiatives to improve health, strengthen food security, and revitalize local economies;
- Continued advocacy to improve humanitarian access to populations in greatest need in southern Sudan;
- Investigation of the extent and cause of civilian displacement in Western Upper Nile/Unity State, the region of current greatest humanitarian concern;
- Expansion of programs to strengthen ties of northerners and southerners living together in crossover communities, building peace through mutual understanding;
- Programs to reduce drought vulnerability of northern Sudanese farmers, herders, and populations; and
- Assessment of the potential role of USAID's Office of Transition Initiatives, emphasizing programs to strengthen civil society and ease the transition from war to peace.
Conclusion
A significant window of opportunity has been opened over the past year by the concerted efforts of the Special Humanitarian Coordinator, the Special Envoy for Peace, and the U.S. Government. The U.S. is once again an international leader in the push for peace in Sudan, and is seeking consensus with its donor partners on strategies for using international leverage to achieve the greatest progress. A long road still lies between the war-torn Sudan of today and the vision of a peaceful and prosperous future tomorrow. The SHC will use all of the resources and talented staff at his disposal to help Sudan take several steps toward that goal in the coming year.
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