PREFACE

In 1999 and January 2000, the United Nations Country Team (UNCT) in Ethiopia issued a number of appeals to solicit support for UN humanitarian operations to assist war- and drought-affected populations and refugee/returnee operations. In 2001, the UNCT will prepare an appeal covering the same components but this time as part of the Consolidated Appeals Process (CAP) and in context of the regional approach for humanitarian assistance to the Horn of Africa. This decision was taken in line with the recommendations by UN Special Envoy for the Drought in the Horn of Africa, Ms. Catherine Bertini. The UNCT appeal process in Ethiopia utilizes and applies the increasingly important and well developed strategic planning and programming concepts of the CAP within the UN system as well as complimenting the well-established and collaborative process led by the Government of Ethiopia which leads to the annual estimation of national food and non-food emergency requirements.

The UN Inter-Agency Consolidated Appeal (CA) for Ethiopia will be launched in January 2001, i.e. not simultaneously with the CA for most other complex emergencies, which will be launched at the Global Launch event on 28 and 29 November. The UNCT in Ethiopia decided to opt for this alternative time frame in view of the fact that thorough needs assessments, that precede the compilation of the full-fledged Appeal, can only be carried out in November – December 2000 to account for the agricultural cycle and to position the CA as fully supportive of the Government of Ethiopia’s Annual National Relief Appeal which will precede the CA in January.

This year’s global theme for the CAP is “Women and War”. This theme is particularly relevant to the Ethiopian context given the high percentage of women and children among the war- and drought-affected populations in Ethiopia. Humanitarian agencies will therefore continue to pay particular attention to their specific protection and assistance needs as a vulnerable category when providing emergency and recovery assistance in 2001.

The present document is intended to provide the international donor community with an overview of the current humanitarian situation in Ethiopia and the status of the humanitarian programme to date. In addition, the document presents elements of the (tentative) Common Humanitarian Action Plan (CHAP) for 2001 to be incorporated as part of the January CA. This document does not include detailed sectoral strategies and objectives, agency project summaries and financial requirements. These elements will be formulated once the results of current needs assessments being conducted in conjunction with the Government of Ethiopia become available and will be elaborated upon and presented in the CA.

In the interim, the donor community is strongly encouraged to continue its support to the still current Ethiopia component of the June 2000 Emergency Appeal for the Drought in the Horn of Africa as well as the August 2000 Updated Appeal for War-Displaced Civilians in Ethiopia. Both Appeals contain a relatively large number of Agency interventions (particularly in the non-food and agricultural sectors) that are currently still inadequately funded.

Executive Summary

As a result of poor rains and war, the people of Ethiopia have suffered a very difficult two years. According to official estimates, this July the number of people requiring emergency assistance exceeded 10 million – 15.7 % of the total population. With better rains in pastoral areas and the highlands and an end to hostilities between Ethiopia and Eritrea, there are now signs of an improvement in the situation. Large numbers of people, however, including some 350,000 displaced by conflict, continue to face an uncertain future. Though a favourable main season harvest is now in prospect, people in the poorest areas of the central and northern highlands have become so impoverished that they have been unable to take advantage of any improvement in the weather. Indeed, there is a perception that many rural communities in the highlands of Ethiopia are perhaps more vulnerable today than they were ten years ago.

Through a major relief effort, as well as some fortuitous rains, a looming famine was averted in Ethiopia this year. Full recovery, however, is expected to be a long process. This is especially true in the pastoral areas where restoring livestock herds which have been devastated by drought will take several years of consistently favorable weather and market conditions to recover, perhaps an unlikely prospect given recent experience in the Horn of Africa. A new commitment to providing appropriate longer-term development assistance in the disaster-prone areas is urgently needed if people are to be insulated against the expected recurrence of drought.

Donor Response towards UNCT Requirements for Drought-affected, IDPs, and Refugees in 2000*
	Requirements US$	Pledges US$	Shortfall US$
Drought: Jun. – Dec.
Food	152,660,953	**93,327,154	59,333,799
Non-food	37,350,630	8,144,825	29,205,805
Sub-total	190,011,583	101,471,979	88,539,604
IDPs: Sept. – Dec.
*** Food	15,127,704	4,205,185	10,922,519
Non-food	15,329,064	433,000	14,896,064
Sub-total	30,456,768	4,638,185	25,818,583
Refugees: Jan. – Dec.
Food	33,291,003	33,291,003	0
Non-food	****22,598,062	18,200,000	4,398,062
Sub-total	55,889,065	51,491,003	4,398,062
Total Shortfall			118,756,249

* Does not include agency specific reserve funds.

** Contributions since January amount to US$ 221,365,037 (emop 6143, 6218, 6218 B/R). Does not include a recent

additional US contribution of wheat, quantity to be determined.

*** Excludes an expected contribution still not confirmed, to cover outstanding cereal requirements.

**** This requirement is for UNHCR’s regular programme activities.

In 2001, the UNCT in Ethiopia aims to:

· support the recovery process in areas and among people where the opportunity for a return to normalcy appears possible;

· maintain delivery of relief assistance to those who remain in a desperate situation; and

· build capacity to respond to further deepening of the crisis, should this occur.

To achieve this, the UNCT will build on links forged with the Government and its non-governmental organisation (NGO) and donor partners during the response to the crisis in 1999 and 2000, further developing and strengthening mechanisms for effective collaboration, joint planning, advocacy, resource mobilisation, implementation and strategic operational monitoring.

Three appeals have been launched by the UNCT in 2000. These have included an omnibus appeal in January, an updated drought appeal in June and, reflecting changed circumstances after the signing of the Cessation of Hostilities Agreement, an Updated Appeal for Rehabilitation and Recovery Programmes for the Internally Displaced Persons released in August. In general, these appeals have been well received by the donor community and the response has been encouraging, especially for food relief operations. However, resource mobilisation for critical non-food sectors remains a major challenge, especially for health and nutrition, water and sanitation, education, shelter, protection, and special operations. As the summary table above indicates, non-food sectors for all of the appeals suffer funding shortfalls amounting to some US$ 48 million.

While a more precise determination of food needs for 2001 will result from the upcoming government-led needs assessment in November and December, 2000, World Food Programme (WFP) contingency plans currently point to potential relief food needs of 1 million MTs. In this context, the prospect of low carry-over in relief food stocks into next year has become an issue of major concern. There is hope for an improved food security picture later in 2001 if a near normal main season harvest is obtained. However, donors are urged to meet the outstanding shortfall (over 189,000 MTs of cereals and 44,000 MTs of other commodities) under the Government of Ethiopia's revised July relief appeal in order to ensure sufficient stocks are available to meet the substantial needs that will be carried through to the first part of 2001.

The Year in Review

Drought Emergency

At the beginning of 2000, it was apparent that the cumulative effect of three consecutive years of poor rains caused millions of people in Ethiopia, particularly pastoralists, to be vulnerable to disease, starvation and destitution and forced many to migrate in search of food, water and medical assistance. Compounding this problem was a low carry-over of relief food stocks from 1999 and low stocks in the Emergency Food Security Reserve (EFSR) due to late repayments from donors. Responding to these needs and in support of the Ethiopian Government's national appeal, the UNCT launched an appeal in January to assist the victims of natural disaster, internally displaced persons (IDPs) and refugees.

Although donors responded quickly to the January UN appeal, the arrival of aid was delayed. A timely commitment by the Government of Ethiopia of 100,000 MTs of cereals assisted in the interim and helped stimulate further donor interest. With the failure of the 2000 belg (short season) rains, the magnitude of the crisis in Ethiopia became increasingly visible, pushing the numbers of people in need of assistance to more than 10 million and catching the attention of the international media. Reflecting concern over the regional dimensions of the crisis, the UN Secretary-General appointed Ms. Catherine Bertini as Special Envoy for the Drought in the Greater Horn of Africa in March 2000. Given the vast needs in Ethiopia in relation to the region, and in accordance with the Special Envoy's recommendations, the Office of the Regional Humanitarian Coordinator (ORHC) was established in Addis Ababa to help coordinate Ethiopia-specific responses as well as cross border issues. In supporting this initiative, the UNCT in Ethiopia contributed to the June launch of the UN Emergency Appeal for the Drought in the Horn of Africa.

To address the most acute needs, UN agencies strengthened their relief response capacity; seconded staff to the ORHC; reprogrammed resources; and advanced funds for a quick response. These initiatives were complemented by the placement of additional staff in the field. A UN common office was established in Gode (adding to the existing UN common office in Mekele established for IDP work) which has become the focus of relief operations in the Ethiopian Somali region, and has strengthened security support for field staff. These efforts resulted in enhanced coordination and safety for humanitarian aid workers and improved targeting.

Donor response to Ethiopia’s drought-related food needs, outlined in the UN June Appeal, was very positive. The UN received pledges totaling some US$ 93 million for food assistance through WFP. The response to the non-food portion of the Appeal, however, has been less encouraging, with pledges amounting to just US$ 8.1 million, of a total requirement of US$ 37.3 million. In addition to contributions through the UN June Appeal, significant non-food contributions have been channeled through the NGO community. Of the 1.3 million MTs of global natural disaster food requirements indicated by the Government, over 1.1 million MTs (NGO/WFP/Government) have been pledged. For the estimated global non-food natural disaster requirements for 2000 of US$ 63 million, approximately US$ 33 million have been resourced through UN, NGO and direct bilateral channels, slightly over 50% of total needs.

Of particular concern during the year, were the capacity of Djibouti Port and the poor condition of the road linking the port to Ethiopia. Due to the successful implementation of a series of initiatives by WFP to expand port capacity and upgrade the road as well as to increase the use of the Ethio-Djibouti railroad, it was possible to substantially increase the overall efficiency of this point-of-entry, in terms of off-take, storage and up-country delivery. In addition, a special operation was undertaken to improve the road from the port of Berberra and to charter an aircraft to facilitate the movement of personnel.

Due to acute needs and significant distress migration, a special operational focus throughout the year was the Ethiopian Somali region. Rains in May and from mid-September in the southern and southeastern pastoral areas of the country, combined with increased food deliveries have helped to stabilise the situation. However, assistance will still be required in 2001, due to the scale of the devastating effects of the drought.

The relief system was able to handle the situation in other areas of the country, despite occasional problems regarding deliveries and reduced rations to cover a growing number of beneficiaries. Unlike in 1999, there was no significant stress migration.

Internally Displaced Persons

The UN appeal launched in January included a major component for assistance to civilians displaced as a result of the conflict between Ethiopia and Eritrea. The interventions planned by the UNCT included both food assistance to an estimated 272,000 IDPs and non-food assistance to an estimated 349,000 IDPs in Tigray and Afar. Most of these IDPs were integrated into host communities, but where local populations were unable to bear the burden of hosting large numbers of displaced, people were settled in camp-like settlements, makeshift shelters and caves.

On 18 June 2000, Ethiopia and Eritrea signed a Cessation of Hostilities Agreement to end two years of fighting. Under this agreement, brokered by the Organization of African Unity (OAU) with the support of the UN, the United States, and the European Union, both parties agreed to cease all land and air attacks and to seek a resolution to their disputes through peaceful and legal means.

In August, the UNCT issued its Updated Appeal for Rehabilitation and Recovery Programmes for the Internally Displaced Persons to update requirements contained in the January appeal, in accordance with the changed circumstances. The new appeal provided for immediate assistance measures, and built on previous IPD programmes. Projects in the appeal aimed to facilitate the return of the displaced to their homes while ensuring their care and maintenance. Interventions were in priority areas to start the recovery process and covered the period from the beginning of September to the end of January 2001, in anticipation of the expected upcoming UN Inter-agency Consolidated Appeal in January 2001. This will cover remaining relief needs and provide a bridge to longer-term programmes for rehabilitation.

The signing of the Cessation of Hostilities Agreement potentially changed the situation for the IDPs in northern Ethiopia significantly. For some IDPs there was now an opportunity for them to move back to their places of origin and resume their economic activities. Most people who were displaced from their homes, however, lost all of their possessions. In order to make their return viable, there was a clear need for continued assistance in practically all sectors.

The most critical obstacle to the safe return of IDPs and resumption of normal life is the presence of landmines and unexploded ordnance (UXO) along the border area. Many villages, roads, pathways and hectares of farmland have been planted with landmines or exposed to UXO, and many people returning to their homes or farmland have already been injured or killed. The presence of mines/UXO also impedes the planning process for assistance programmes in these areas, as it is not possible to visit many areas for assessment.

Of increasing concern has been the plight of Ethiopians returning from Eritrea who require special arrangements to ensure that they receive immediate food and non-food assistance. In addition to the estimated 67,000 who had returned by the end of 1999, official estimates suggest that some 28,000 Ethiopians have returned from Eritrea since the end of the fighting in June, and up to 33,000 are expected to return in the coming months. While the International Committee of the Red Cross (ICRC) has been active in assisting the safe transit of some people as they cross the border, the federal and regional authorities have been providing relief to people on their arrival, with the assistance of WFP and the United Nations Children’s Fund (UNICEF).

The donor community has begun to respond to the August UNCT updated appeal for IDPs. Thus far, contributions amounting to US$ 4.6 million, of a total requirement of US$ 30.4 million for food and non-food assistance have been received. Although this is a start to meeting the most immediate needs for the IDPs, continued donor assistance is necessary to ensure long-term support for the IDPs and returning Ethiopians in 2001.

Refugees

Ethiopia is currently hosting a caseload of 204,955 refugees, including an estimated 134,215 Somalis and approximately 75,000 Sudanese. The remaining refugees include a sizeable caseload of 5,018 Kenyan Somalis, some 1,500 Djiboutian Afars and 411 urban refugees originating from various other African countries. More recently an influx of around 3,000 Eritreans (Kunamas) have sought asylum in the Sheraro area of Tigray, fleeing from the Ethiopia-Eritrea conflict. In addition, continuing insecurity in the Blue Nile region in southern Sudan has led to a new influx of an estimated 5,000 refugees into the Bambudie area in Benishengul-Gumuz. Also, the UNCT requested the provision of shelter materials to meet the needs of some 70,000 persons comprising former returnees from Sudan, who again became displaced as a result of the conflict with Eritrea. However, funding was not forthcoming.

WFP is currently providing food assistance to 209,000 refugees. However, given the uncertainly of the influxes, WFP’s Protracted Relief and Recovery Operation (PRRO) is planning for a total caseload of 238,000 persons, or 53,580 MTs for the year 2001. The WFP refugee PRRO is fully resourced until the end of January 2001.

As of 23 October, 2000, programmes that support and promote voluntary repatriation have contributed to the repatriation of 37,277 Somali refugees. A further 7,703 Ethiopian returnees resident in the camps in southeastern Ethiopia have been assisted in dispersing the surrounding villages of origin. The cumulative total for both voluntary repatriation/dispersal for the year 2000 stands at 44,980. Preparations for the voluntary repatriation of Kenyan refugees located in southern Ethiopia are currently in an advanced stage, and this group is expected to repatriate by the end of 2000. In all operations in Ethiopia, the principle governmental counterpart and implementing partner for the United Nations High Commissioner for Refugees (UNHCR) is the Administration for Refugee and Returnee Affairs (ARRA).

Humanitarian Context

With an encouraging start to the deyr (short season) rains in the southern and southeastern lowlands, where the recent drought has been most severe, the UN foresees a gradual improvement in livestock condition and production during the next six months. However, in the Somali region and Borena, livestock losses, especially of cattle, were so dramatic that it will be several years before the herds recover and people regain some measure of economic independence. Although it is anticipated that substantial food assistance will still be required next year, there will also be opportunities in the coming months to support programmes that provide a bridge from relief to long-term development.

While there has been an encouraging start to the deyr rains, at the same time the renewal of the import ban imposed by the Kingdom of Saudi Arabia, Yemen and four gulf states on livestock from the Horn of Africa represents a potentially serious setback. The new restrictions will have far-reaching implications on the economic situation of the Ethiopian Somali region where more than two-thirds of household incomes are based on livestock production and trade. Following successive seasons of drought, pastoralists are much less resilient to the economic impact of the import ban than they were in 1998 when the previous restrictions where imposed.

NGOs have been active in providing assistance and support to displaced people. Although the response in conflict-affected areas has often been limited to the provision of resources, both local and international NGOs have been very active in assisting people displaced as a result of the drought, particularly in the Ethiopian Somali region. Although in some areas the local capacity is quite weak, NGOs are in a position to make significant contributions to the emergency response and many are also committed to addressing recovery and long-term development issues. The UNCT will seek to strengthen existing mechanisms of cooperation and collaboration with the NGO community at all levels.

The approach of the UNCT to IDPs, where possible, has also been to build on existing long-term development programmes in the affected areas, especially in the health, water and education sectors. By doing so, the UNCT response, though financially modest, has been strategically significant in enabling the regional authorities to assist the displaced through an expansion of existing services rather than through the creation of a parallel infrastructure, as so often happens in such emergencies. This experience has proven to be effective, although a shortage of resources has meant that the UNCT has not been as pro-active a partner to the government as it would have liked.

Although there are few major protection issues with the war-displaced, in 2000 both the Government and the international community alike were challenged by the issue of how to reintegrate into society those Ethiopians returning from Eritrea. In 2001 this group will require special planning and attention.

Proposed Strategy for 2001