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Sudan – Complex Emergency
Situation Report #12, - (FY) 2009 May 04, 2009
Background
In 2009, Sudan continues to cope with the effects of conflict, displacement, and insecurity countrywide. Since 2003, a
complex emergency in Sudan’s western region of Darfur has affected more than 4.7 million people, including nearly 2.7
million internally displaced persons (IDPs). In Darfur, conflict among armed opposition factions, the Sudanese Armed
Forces (SAF), militias, and ethnic groups remains ongoing. According to the U.N., violence has displaced
approximately 317,000 individuals within Darfur and to eastern Chad since January 2008. Simultaneously,
humanitarian agencies have experienced reduced access to affected populations since 2006 due to increased insecurity,
attacks on aid workers, and bureaucratic impediments to program implementation.
The former Government of Sudan and the southern-based Sudan People’s Liberation Movement (SPLM) continue to
implement the 2005 Comprehensive Peace Agreement (CPA) through the joint Government of National Unity (GNU).
The formation of the GNU officially ended more than two decades of north–south conflict. During the conflict, famine,
fighting, and disease killed more than 2 million people, forced an estimated 600,000 Sudanese to seek refuge in
neighboring countries, and displaced an additional 4 million individuals within Sudan. The U.N. estimates that since
2005, more than 2.2 million people displaced during the conflict have returned to Southern Sudan and the Three Areas
of Southern Kordofan, Blue Nile, and Abyei, taxing scarce resources and weak infrastructure. In eastern Sudan, the
GNU and the Eastern Front opposition coalition signed the Eastern Sudan Peace Agreement in 2006. However, the area
remains underdeveloped and has experienced slow recovery following decades of conflict.
Since March 2009, humanitarian agencies have experienced reduced access to affected populations in Darfur and the
Three Areas following the GNU-mandated expulsion of 13 international organizations and closure of three national
humanitarian agencies. The expulsions have resulted in a significant reduction in humanitarian capacity in Darfur and
have threatened key peace dividends in the north–south border region.
The U.S. Government (USG) is the largest bilateral donor to Sudan and has contributed more than $4 billion for
humanitarian programs in Sudan and eastern Chad since FY 2004. The USG continues to support the implementation
of the CPA and joins the international community in seeking a peaceful resolution to the conflict in Darfur. On October
16, 2008, U.S. Chargé d’Affaires Alberto M. Fernandez renewed the disaster declaration for the complex emergency in
Sudan for FY 2009.
NUMBERS AT A GLANCE
| IDP's in Sudan |
| From Southern Sudan |
2.7 million |
UNHCR1 – 10/08 |
| In Darfur |
2.7 million |
OCHA – 12/08 |
| In Eastern Sudan |
168,000 |
U.N – 09/07 |
| Sudanese Refugees |
| From Darfur |
250,000 |
UNHCR – 6/08 |
| From Southern Sudan |
138,270 |
UNHCR – 2/09 |
| Returnees to Southern Sudan |
313,190 |
UNHCR – 3/09 |
| Refugees in Sudan |
| From Eritrea, Chad, Ethiopia, Democratic Republic of the
Congo (DRC), and other nations: |
257,980 |
UNHCR – 12/08 |
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FY 2009 HUMANITARIAN FUNDING PROVIDED TO DATE
| USAID/OFDA Assistance to Sudan and eastern Chad |
$39,249,584 |
| USAID/FFP3 Assistance to Sudan and eastern Chad |
$373,896,500 |
| State/PRM4 Assistance to Sudan and eastern Chad |
$36,995,375 |
| Total USAID and State Humanitarian Assistance to Sudan and eastern Chad |
$450,141,459 |
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CURRENT SITUATION IN DARFUR
A steady decline in the operational environment in
Darfur has characterized the first quarter of 2009,
according to U.N. reports. The U.N. noted that intense
military confrontations resulting in the displacement of
more than 42,000 people from South Darfur to North
Darfur, followed by the expulsion and dissolution of
16 international and national humanitarian relief
organizations significantly impeded humanitarian
operations. Subsequently, a joint U.N.–GNU
assessment determined that humanitarian agencies
could address existing short-term service disruptions,
but highlighted the need for measures to ensure the
bridging of service gaps in a sustainable manner. The
U.N. and the GNU plan to jointly monitor the situation
until the end of May.
In early April, U.S. Special Envoy to Sudan Major
General J. Scott Gration (Ret.) traveled to Darfur,
Abyei, Juba, and Khartoum to assess the ongoing
conflict in Darfur, the situation in Abyei, the
implementation of the CPA, and the impact of the
NGO expulsions on provision of humanitarian services
throughout Sudan. The Special Envoy met with local
officials and representatives from the U.N.–African
Union Mission in Darfur (UNAMID), the U.N.
Mission in Sudan (UNMIS), opposition groups, the
GNU, NGO representatives, and international donors,
and continues his efforts to enlist multilateral support
to address gaps caused by the expulsions.
Security and Humanitarian Access
According to a late March OCHA report, the high
levels of violence and banditry that characterized the
early part of the year have continued since the early
March expulsions. Assaults, carjackings, and
humanitarian staff abductions have impeded
humanitarian service delivery in all three Darfur states.
According to the U.N., armed groups have abducted
nine relief workers in Darfur since March 11,
including recent abductions of four international staff
that were later released unharmed. As a result of
intensified insecurity, some NGOs have relocated staff,
and the GNU has increased security presence in highrisk
areas. Remaining NGO staff have expressed
concern that continuing insecurity and abductions
could result in additional staff departures or reduced
programming.
On April 19, the U.N. reported that, following
negotiations, IDP leaders in Kalma IDP camp in South
Darfur have agreed to permit three NGOs access to the
camp to provide humanitarian services, ending a nearly
two-month interruption in the provision of non-food
humanitarian assistance. From early March to mid-
April, Kalma camp leaders denied humanitarian
agencies access to the camp, protesting the NGO
expulsions. Camp leaders permitted food distributions
on April 7 but continued to deny access for additional
humanitarian services. As of late April, humanitarian
agencies continued to experience difficulties accessing
the camp and to promote liaison efforts with IDP
leaders to improve humanitarian access and service
provision.
Population Movement
During the week of April 20, Sudanese government
authorities initiated IDP returns to West Darfur from
several areas, including Armankul and Tendalti
villages and Riyad and Abu Zar IDP camps. IDPs had
fled from Seraf Jidad due to SAF aerial bombardments
and ground offensives during January and February
2008. On April 23, a U.N. interagency mission in
Armankul village reported the presence of armed SAF
personnel and GNU Humanitarian Aid Commission
(HAC) officials encouraging IDPs to dismantle
shelters and load belongings onto GNU HAC-provided
trucks. According to OCHA, the GNU HAC planned
to distribute food and emergency relief supplies to
IDPs at the returns site in West Darfur. Humanitarian
agencies are currently working to verify the voluntary
and appropriate nature of the returns and confirm
returnee numbers.
Food Security and Nutrition
Humanitarian agencies note that the early March
expulsions continue to negatively affect food security
and livelihood support in Darfur. According to an
April U.N. Food and Agriculture Organization (FAO)
report, more than 32,000 households in Darfur are not
expected to receive previously planned diversified
food security and livelihood support as a result of the
NGO expulsions.
In April, the U.N. World Food Program (WFP)
commenced a blanket supplementary feeding program
for 15,000 children located in North Darfur. Between
April and August, WFP plans to target at total of
300,000 children in Darfur for supplemental feeding in
order to prevent seasonal increases in malnutrition
rates associated with the annual May/June to
September hunger season.
On April 30, the U.N. reported that WFP is preparing
to launch a special operation in Darfur to provide
continued food assistance to beneficiaries previously
served by expelled NGOs through June. WFP plans to
provide operational support to partner NGOs
expanding into gap areas, and establish an office and
facilities for WFP and partner organizations in remote
locations with limited or no NGO services. The
special operation also contains contingency plans in
the event that some areas remain without NGO
coverage. The operation plans to To date in FY 2009,
USAID/FFP has supported the provision of nearly
201,000 metric tons (MT) of P.L. 480 Title II
emergency food assistance to vulnerable individuals in
Darfur through WFP.
Health
On April 22, the U.N. estimated that approximately
460,000 people in Darfur remained unable to access
Sudan Complex Emergency – May 4, 2009
health services, reduced from nearly 1 million
individuals immediately following the expulsions.
However, the U.N. also highlighted the need to recruit
up to 800 health care workers in order to resume pre-
March 4 health care coverage levels.
On April 27, the U.N. World Health Organization
(WHO) reported that only one-third of health staff in
West Darfur and three-quarters of health staff in South
Darfur were working as a result of the expulsions. In
addition, WHO reported that the Darfur State
Ministries of Health (SMOH) had assumed
management of less than half of the total number of
primary health care centers previously operated by
expelled NGOs as of April 26.
According to WHO, the sudden interruption of
community health care has seriously reduced
immunization coverage, disease control efforts,
emergency obstetric services, and laboratory services
in some areas, as well as disrupted disease surveillance
and early warning systems. Humanitarian agencies
note that critical health gaps ahead of the rainy season
could potentially increase the spread of disease.
In April, health staff noted ongoing concerns regarding
high levels of meningitis in South Darfur. According
to WHO, health partners had reported 182 suspected
cases of meningitis in South Darfur as of April 19.
Health partners performed meningitis vaccination
campaigns in Al Salam, El Sereif, Al Geer, and Bielel
IDP camps, immunizing more than 120,000 people in
South Darfur against meningitis as of April 19.
USAID/OFDA continues to provide support to
humanitarian agencies implementing health programs
throughout Darfur, including more than $4 million to
the International Medical Corps (IMC) to support
health care programs for conflict-affected populations
in Darfur in FY 2009.
Emergency Relief Supplies and Emergency Shelter
As of April 27, the U.N. Joint Logistics Center
(UNJLC) had assumed control of four out of five
formerly CARE-managed Non-Food Item (NFI)
Common Pipeline warehouse locations in El Geneina,
West Darfur; Nyala, South Darfur; El Obeid, Northern
Kordofan State; and Khartoum. The resumption of
warehouse operations represents a significant
improvement in the capacity of humanitarian partners
to prepare for the upcoming May/June rainy season
and respond to new and ongoing needs of displaced
populations. However, critical relief commodity
distributions in response to displacement in North
Darfur, including significant population movements to
overcrowded Zam Zam IDP camp in North Darfur,
remain pending due to the continued delay of GNU
hand-over of the NFI Common Pipeline warehouse in
El Fasher, North Darfur, to UNJLC.
To date in FY 2009, USAID/OFDA has provided more
than $10 million for logistics and relief commodities to
multiple implementing partners and nearly $900,000 to
Samaritan’s Purse and Terre Des Hommes to provide
shelter and settlements assistance to conflict-affected
populations in West and South Darfur.
Water, Sanitation, and Hygiene
On April 22, the U.N. reported that significant water,
sanitation, and hygiene (WASH) gaps remain in rural
areas of Darfur. In addition, the U.N. noted that local
NGOs lack the capacity to assume full responsibility
for the provision of safe drinking water, maintenance
of sanitation services, and promotion of proper hygiene
practices before the onset of the May/June rainy
season. As a temporary measure, the U.N. Children’s
Fund (UNICEF) continues to supply potable water to
18 locations and promote sanitation in four locations in
Darfur.
On April 21, the South Darfur SMOH and the GNU
Office of Water and Environmental Sanitation
announced a new coverage plan to ensure that all IDP
camps in South Darfur receive WASH services. The
plan delegates responsibility for all three components
of the WASH sector to one organization in each
location, with SMOH oversight of all activities. Relief
agencies continue to closely monitor delivery of
WASH services as the onset of the rainy season
approaches in May/June.
CURRENT SITUATION IN SUDAN,
EXCLUDING DARFUR
On April 19, OCHA reported deteriorating
humanitarian conditions in Southern Sudan due to
increased inter-ethnic clashes, reduced humanitarian
access, and potential flooding as the rainy season
approaches. In addition, OCHA highlighted concerns
that the disruption of humanitarian, recovery, and
development services to communities in the Three
Areas due to the early March NGO expulsions has
negatively affected efforts to deliver peace dividends
and activities supporting peace and stability.
On April 30, the U.N. Security Council unanimously
adopted resolution 1879 (2009) extending the mandate
of UNMIS and the U.N. peacekeeping mission, which
includes 10,000 military personnel and police, until
April 30, 2010. The Security Council established
UNMIS in 2005 to support the implementation of the
Comprehensive Peace Agreement between the
Government of Sudan and the Sudan People’s
Liberation Movement. The Security Council stressed
the importance of full and expeditious implementation
of the peace agreement and noted that key issues such
as the north–south boundary remain unresolved.
Security and Humanitarian Access
On April 22, local officials reported that inter-ethnic
clashes in Akobo County, Jonglei State, killed at least
250 people, resulted in the abduction of approximately
33 children, and displaced approximately 15,300
individuals. The mid-April violence followed clashes
in early March between the same two ethnic groups
that killed as many as 750 people and displaced more
than 5,000 others in Pibor County, Jonglei State. To
date, WFP has provided emergency food assistance to
more than 5,000 conflict-affected individuals in
Jonglei State, and the U.N. has initiated needs
assessments in affected areas.
In late March and early April, suspected Lord’s
Resistance Army (LRA) attacks displaced more than
11,500 people in Ezo town and Ezo County, Western
Equatoria State, according to U.N. reports. An April
16 OCHA-led rapid needs assessment determined that
nearly 1,100 individuals required immediate
humanitarian assistance as a result of the attacks. The
assessment report noted critical food conditions, with
IDPs relying on already strained food stocks within
host communities. USAID partner the International
Organization for Migration (IOM) distributed 800
emergency relief supply kits to affected populations
concurrently with WFP food distributions in mid-
April. Although the LRA has reportedly withdrawn
from the area, the affected population remains
displaced particularly in Ezo and Tambura counties.
Intermittent LRA-related violence has affected
populations in Southern Sudan for nearly 25 years.
Humanitarian agencies highlight that insecurity, heavy
rains, and poor roads in Western Equatoria State are
hampering delivery of humanitarian assistance to local
populations, including IDPs affected by suspected
LRA attacks and refugees from DRC. In addition,
concerns regarding potential insecurity and LRA
attacks impeded humanitarian efforts to pre-position
supplies prior to seasonal rains that started in the area
in late March and early April
Agriculture and Food Security
Despite a forecasted improved harvest and recent
decline in global agriculture commodity prices, current
staple crop prices in Sudan have increased or remained
at high levels, according to a March FAO report. FAO
noted that cereal prices reached record highs during
January and February 2009 in all selected major
markets, despite higher than average production
increases. FAO cautioned that prices may further
increase during the upcoming hunger gap season,
associated with the May to August rainy season. FAO
also warned that additional cereal price increases could
increase the number of people at risk of food shortages
in conflict-affected, subsistence farming, and pastoral
areas of the country that typically rely on the market to
meet food needs and are currently affected by poor
livestock terms of trade.
In early April, USAID field staff visited Lagawa
locality, Southern Kordofan State, to assess
humanitarian conditions following the early March
expulsions of five aid organizations operating in the
area. According to a USAID implementing partner,
food security represents a major concern in the area,
due to significant price increases during the last three
months. A 90 kg bag of millet currently costs
approximately $64, compared to approximately $51
during the same time last year, according to USAID.
According to WFP, heavy rainfall on April 11 in Abu
Gebeha town, Southern Kordofan State, marked the
beginning of the 2009 rainy season in central Sudan.
In anticipation of the rainy season, WFP continues to
pre-position more than 37,000 MTs of food assistance
in several parts of Southern Sudan and the Three Areas
and plans to conclude pre-positioning by early May.
Health
On April 22, UNICEF reported that the Government of
Southern Sudan had launched emergency measures to
address a polio outbreak originating in Southern Sudan
and currently spreading to western Ethiopia, Kenya,
Uganda, and northern Sudan. UNICEF estimates that
at least 30 percent of children in Southern Sudan are
not immunized, contributing to the intensification and
spread of the outbreak. Since health officials
confirmed the outbreak in June 2008, health workers
have reported 46 polio cases in Southern Sudan. The
recent spread into northern Sudan, including Khartoum
and Port Sudan, is of particular concern because the
2004 to 2006 outbreak also originated from the same
area and subsequently spread to Saudi Arabia,
Somalia, Yemen, and Indonesia, resulting in more than
1,200 reported cases. USAID supports three relief
agencies responding to the outbreak in Northern Bahr
el Ghazal State, Southern Sudan.
In mid-March, health workers responded to a cholera
outbreak that had affected approximately 150 people in
Northern Bahr el Ghazal and Warab states. Although
health staff contained the outbreak in several areas,
OCHA continues to report sporadic cases of acute
watery diarrhea, including a case in Pibor County,
Jonglei State in late April. Humanitarian agencies
highlight the unusual nature of a cholera outbreak
during the dry season and plan to continue to monitor
the situation through the onset of the rainy season in
April/May.
From January to March, relief agencies reported three
outbreaks of meningitis in three counties in Southern
Sudan. Health partners recorded a total of 152
meningitis cases resulting in 10 deaths during the three
months. In response, health partners organized mass
immunization campaigns in affected counties.
Floods
As the rainy season approaches, relief agencies
continue to prepare for potential flooding in Southern
Sudan. According to the National Oceanic and
Atmospheric Administration Climate Prediction
Center, Southern Sudan received rainfall levels 20 to
80 percent above normal levels in 2007, while in 2008,
rainfall in the region occurred at near normal levels.
However, both the 2007 and 2008 rainy seasons led to
severe flooding in Northern Bahr el Ghazal, Upper
Nile, and Jonglei states. From April 20 to April 26, a
USAID team traveled to Juba and Aweil in Northern
Bahr el Ghazal State to assess flood mitigation efforts
in preparation for the upcoming rainy season. The
team visited flood-affected communities, road and
bridge construction sites, and recently constructed
levies. Assessment findings highlighted the significant
contribution of the area’s topography and land
degradation to the impact of flooding.
Returns
Between January 1 and April 23, UNHCR reported
that nearly 20,500 people had returned to Southern
Sudan, compared to 17,000 in 2007 and approximately
42,000 in 2008. A steady increase in the number of
refugees returning to Southern Sudan has brought the
total number of assisted returns of refugees since the
signing of the CPA in 2005 to approximately 150,000
individuals with an additional estimated 160,000
spontaneous returns. Total refugee returns to Southern
Sudan surpassed 310,000 out of more than 418,000
refugees registered in neighboring countries in
December 2004. In addition, humanitarian agencies
project that between 500,000 to 1 million IDPs
currently residing in northern Sudan are expected to
return to areas of origin in Southern Sudan and the
Three Areas during the next two years.
USAID reconstruction programs support the establishment of a foundation for a just and durable peace with the broad participation of the Sudanese people. Activities focus on supporting the peace process, democracy and governance, education, health, and economic growth.
USAID humanitarian programs work to meet immediate needs while simultaneously transitioning to longer-term reconstruction and development activities in areas outside of Darfur. Priorities include assisting individuals displaced by conflict, providing basic services in traditionally underserved areas, and improving food security through increased agricultural production.
USAID food assistance accounted for over 80 percent of the commitments to the UN World Food Program in 2005, and supports ongoing programs with the Red Cross and other nongovernmental organizations. As the leading donor of food assistance to Sudan, USAID targets food aid commodities to the most vulnerable, with particular emphasis on women and children.
USAID Sudan Strategy Statement (pdf,469kb)
USAID Monthly Update - November 2007 (pdf,505kb)
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