Consolidated Inter-Agency Appeal for Angola 2002

EXECUTIVE SUMMARY
Contrary to expectations, the general humanitarian situation in Angola did not improve during 2001. Displacement reached triple projected levels and resettlement stagnated, putting further strain on over-stretched emergency programmes. Although agencies were able to stabilise acutely distressed populations in accessible areas and efforts were made by the Government to reach vulnerable groups, little progress was made in reducing the emergency caseload and virtually no improvement occurred in social indicators.

During 2002, displacement is expected to continue at levels only slightly lower than in 2001. Conditions for new operations are likely to be in place in only eight to ten locations and access for international agencies will remain restricted. Guerrilla and counter-insurgency warfare is expected to create further hardship and deepen vulnerabilities among at-risk populations, particularly in areas where no humanitarian assistance is provided. Hundreds of thousands of Angolans in militarily contested areas are likely to suffer violations of their basic rights and more than one million displaced will depend on external assistance to survive.

The 2002 United Nations (UN) Consolidated Inter-Agency Appeal has been prepared by humanitarian partners in full consultation with the Government of the Republic of Angola and complements the overarching framework for humanitarian assistance presented in the Government's National Emergency Plan of Action and further elaborated in the eighteen Provincial Emergency Plans of Action (PEPA). The strategies in the Appeal reflect the Government's priorities in reducing dependency, building self-reliance, decentralising coordination and strengthening local capacities. The main aim of the Appeal is to alleviate the worst aspects of the humanitarian crisis in Angola by addressing the critical needs of the most vulnerable populations while laying the groundwork for social and economic recovery.

In a positive step forward, the Government and humanitarian partners are adopting a rights-based strategy in the 2002 Appeal to ensure that assistance is provided in accordance with core principles contained in the Angolan constitution and on the basis of international standards. Through the new partnership targets, humanitarian actors will be moving systematically during the next several years towards the gradual attainment of the rights expressed in Angolan law. Recognising that conditions are highly variable, the operation will continue to be focused, cost-effective, pragmatic and flexible enough to cover rapid onset emergencies, prolonged emergencies and resettlement initiatives.

The overall direction of the operation will remain the same, with agencies continuing to integrate programmes through coordination structures at the national and provincial levels. On the basis of assessments, food agencies will shift from general distributions to targeted assistance for the most vulnerable groups and will promote self-reliance through food-for-work. Populations living in transit centres and displaced camps will be relocated in accordance with the Norms for the Resettlement of Displaced Populations and food security increased as a result of integrated agricultural programmes. Major efforts will be made to lower morbidity and mortality through targeted programmes in water and sanitation, nutrition, polio eradication, and mother and child healthcare. Learning opportunities will be boosted by expanding access to both formal and non-formal education systems and mine action will be integrated into the humanitarian operation. Agencies will support campaigns to provide proof of identity to Angolan citizens and will help to address protection issues by implementing Provincial Protection Plans.

The Government will continue to coordinate the humanitarian operation with support from the United Nations and is expected to significantly increase resources for emergency programmes and humanitarian sectors. The Government will also ensure that humanitarian activities are linked to strategies for poverty alleviation and national reconciliation. To cover their part of the humanitarian operation, UN Agencies and non-governmental organisations (NGO) are requesting US$ 232,768,666 for 130 projects in 13 sectors. Projects have been included in the Appeal on the basis of clear priorities. To ensure the success of the integrated approach, adequate funding is required for all aspects of the operation.

YEAR IN REVIEW

Despite general expectations that social indicators would improve during the year and that many dependent populations would be able to achieve food security, overall humanitarian conditions deteriorated. Faced with triple the projected displaced and a marked increase in the number of security incidents, agencies were unable to launch large-scale recovery programmes, focusing instead on stabilising acutely distressed populations in areas accessible to international organisations. Through integrated programming linking food and nutrition interventions with targeted initiatives in health, water and sanitation, education, mine action and protection, agencies helped newly displaced and other vulnerable populations in camps and resident communities to avoid further hardship. Working under the general coordination of the Government, an estimated four million Angolans, close to one quarter of the entire population, received some form of external humanitarian assistance during the year.

Although conditions worsened during the year, funding for humanitarian programmes was substantially lower than expected. By October, only 44 percent of the USD 233 million requested in the revised 2001 Consolidated Inter-Agency Appeal had been funded. Agencies working in sectors with high funding levels, including refugees (80 percent), security (57 percent), coordination and support services (52 percent), food assistance (50 percent) and health (41 percent), were able to implement sectoral strategies. Agencies working in poorly funded sectors, including protection (29 percent), water and sanitation (17 percent), education (16 percent) and mine action (2 percent), were forced to curtail important programmes linked to the integrated approach.

Despite cutbacks in overall funding, the achievements of the humanitarian operation were notable. More than one million people survived on the basis of food assistance provided by food agencies. Seventy thousand newly displaced families received emergency survival items and 105,000 displaced people were relocated out of transit centres and overcrowded camps to resettlement sites. Malnutrition rates improved significantly for both resident and displaced communities in six hard-hit areas: Malanje, Cubal, Moxico, Huambo, Camacupa and Kuito. The agricultural campaign was considered one of the most effective in recent years with more than 380,000 families receiving inputs and approximately 432,000 IDPs benefiting from the distribution of 249,677 hectares of land.

As part of a major initiative to lower morbidity and mortality, approximately 250,000 people in Bié, Huambo and Malanje Provinces gained access to potable water following the construction, rehabilitation, cleaning and chlorination of 740 water sources. Approximately 20,000 children were enrolled in primary schools through the Teacher Emergency Package (TEP) and an additional 20,000 participated in community-based literacy programmes. NGOs working in the mine action sector were able to help open 6,376,599 square metres of land for civilian use by neutralising 2,077 mines and 71,526 unexploded ordnance (UXO).

In line with its commitment to take the leading role in the coordination and delivery of humanitarian assistance, the Angolan Government continued to channel resources into emergency programmes. During 2001, under Phase II of the National Programme for Emergency Humanitarian Assistance (PNEAH), USD 17 million was disbursed directly to Provincial Governors for resettlement activities, social infrastructure and agricultural programmes. In May 2001, the Council of Ministers extended Phase II and authorised an additional USD 12.5 million to Governors in hard-hit regions. The Government allocated USD 17 million to the Ministry of Social Affairs and Reintegration (MINARS) for 8,000 metric tonnes (MTs) of food and emergency items for hard-hit areas inaccessible to international agencies. Fifteen million dollars was channelled into agriculture programmes in support of resettlement and USD 20 million to the new Fund for Peace and National Reconciliation.

Despite these achievements, agencies were able to make only limited progress towards the key goals of promoting self-reliance and laying the groundwork for a transition out of emergency. Unexpectedly high levels of displacement, delays in resettlement, and the continuing lack of Government capacity narrowed the scope of humanitarian operations and limited the steps that could be taken to overcome underlying structural problems.

Agencies had based their optimistic scenario for 2001 on the assumption that new displacements would decline and that relatively large numbers of persons would be resettled. Due to widespread and persistent insecurity, trends moved in the opposite direction. Displacement stayed at similar levels and resettlement stagnated, despite an agreed strategy aimed at alleviating conditions in overcrowded camps and transit centres by complying with the Norms for the Resettlement of Displaced Populations. Efforts to build capacity within the Government were more successful, particularly within the Technical Unit for the Coordination of Humanitarian Assistance (UTCAH), although limited social sector funding and dysfunctional institutional structures prevented authorities, especially at the provincial level, from developing the policy frameworks and administrative procedures necessary for future recovery and development.

Food security became worse for many vulnerable populations, both in terms of availability and access to food, as a result of interlocking factors including late and irregular rains, lack of suitable land and inputs, and declining living standards. Destitution among resident and displaced persons also increased, particularly in areas where insecurity prevented the regular movement of people and commodities. In addition, tens of thousands of people lost their homes and agricultural fields during heavy rains and flooding in March and April. In a particularly worrying trend, evidence continued to mount that conditions in inaccessible areas were deteriorating. In May, critical needs were suspected in 14 inaccessible locations. By August, the number had increased to 20.

Guerrilla and counter-insurgency warfare had a serious impact on civilians living in militarily contested areas. Tens of thousands of civilians were systematically attacked by armed elements and relocated, sometimes forcibly, into municipal and provincial centres where international agencies provided life-saving assistance. Many populations who entered safe havens were in appalling condition, having suffered extended periods of hunger and been subjected to harassment, looting and physical assault. Catastrophic malnutrition rates of more than 45 percent were recorded among several of the newly arrived populations.

In May, during the Mid-Year Review of the Appeal, agencies revised the planning scenario to account for the increased levels of vulnerability and insecurity. By the end of the year, despite widespread emergency interventions, noticeable improvements in humanitarian conditions had occurred for only a few populations, including those resettled on the basis of the Norms, while in areas receiving large numbers of newly displaced, conditions had visibly deteriorated.

Widespread insecurity also had a serious impact on the delivery of humanitarian assistance. Despite over 70 assessments, agencies were able to launch new operations in 13 locations and only one new corridor into Camacupa was opened. More than 60 percent of all humanitarian assistance was transported by air. Lack of fuel and on-going delays with the repair of key airstrips, including Kuito, slowed humanitarian operations. In June, two World Food Programme (WFP) planes were shot at and all air deliveries were temporarily suspended. In May, four humanitarian personnel were killed during an attack against Caxito. Forty-nine staff were relocated and operations suspended for several weeks. Programmes were also temporarily halted after Uíge was attacked in June and 43 personnel relocated.

Progress

The humanitarian operation remained large, with ten UN Agencies, 100 international NGOs and more than 340 national NGOs either active or registered. Eleven technical ministries and departments and all Provincial Governments were also involved in humanitarian assistance. Overall coordination of the operation was undertaken by the Minister of Social Affairs and Reintegration on the part of the Government and by the Humanitarian Coordinator on the part of the United Nations, supported by the Office for the Coordination of Humanitarian Affairs (OCHA), which continued to serve as the Coordinator's secretariat. Under the leadership of the Government, serious efforts were made to build on the achievements of the previous year. On the basis of jointly established priorities, the humanitarian operation was considerably strengthened by the following:

Food Security, Resettlement and Targeting

• Fifty percent of all resettlement initiatives were carried out in compliance with the Norms for the Resettlement of Displaced Populations, which were published in the official journal of the Republic of Angola on 5 January 2001.
  
  
• In February 2001, under the leadership of MINARS, a technical working group was formed to develop standard operating procedures (regulamento) for the Norms.
  
  
• Government agencies and humanitarian partners jointly developed and implemented a new registration system to improve targeting of WFP food aid beneficiaries at the provincial level.
  
  
• Targeting and monitoring of food assistance was also strengthened as a result of regular inter-agency vulnerability assessments conducted under the leadership of the Vulnerability Analysis and Mapping (VAM) Unit in WFP.

Health, Nutrition and Education

• National protocols on nutrition were implemented at the Luanda paediatric hospital and nutritional rehabilitation centres in Caxito, Benguela, Catumbela, Menongue and Huambo. At the national level, partners developed systems to ensure regular data collection from feeding centres and a schedule for nutrition surveys.
  
  
• The July National Immunisation Day (NID) was the first synchronised campaign to be held in conjunction with neighbouring countries.
  
  
• Epidemiological antennae aimed at tracking and responding to six key epidemic diseases, including measles, meningitis, cholera, prenatal tetanus and yellow fever, were established in Huíla, Uíge, Moxico, Benguela, Huambo, Cabinda and Luanda Provinces. The antennae were also used to coordinate acute flaccid paralysis surveillance and polio campaigns.
  
  
• A campaign for the promotion of impregnated bed nets was jointly developed by the United Nations Children's Fund (UNICEF), World Health Organization (WHO), Ministry of Health (MINSA) and NGOs to reduce the risk of malaria. In addition, anti-malarial drugs were provided to health facilities in vulnerable communities and health staff were trained in the diagnosis and treatment of malaria.
  
  
• In May 2001, a social mobilisation campaign to combat HIV/AIDS was launched. In addition, rapid assessments of HIV/AIDS prevalence were conducted in Benguela, Huíla and Luanda.
  
  
• Emergency medical response teams were established in Cunene, Huíla and Namibe and used to help control meningitis outbreaks in Balombo and Cunene.
  
  
• Over 45 nurses and doctors and approximately 150 health promoters and birth attendants were trained in emergency obstetric services and reproductive health in Benguela, Bié, Huíla, Luanda and Malanje Provinces.
  
  
• Educational materials were provided to 120,000 children in vulnerable communities and 90 communities benefited from improved educational facilities.

Protection

• The Protection Working Group, an inter-agency body comprised of representatives from UN Agencies and NGOs, agreed on a comprehensive IDP protection strategy in January. In May, the terms of reference for the Government-led Sub-group on Refugees and IDPs were revised to include responsibility for promoting IDP protection.
  
  
• A joint training team composed of Government and UN representatives held provincial protection workshops in ten provinces for representatives from security forces, local authorities, UN Agencies, NGOs and members of civil society. Ten Provincial Protection Plans were drafted and six officially approved by the Provincial Governments in Zaire, Malanje, Benguela, Bié, Kuando Kubango and Kuanza Norte. Three provincial working groups on protection were established and are meeting regularly to address protection issues.
  
  
• The Ministry of Justice (MINJUS), supported by UN Agencies and NGOs, launched a nation-wide campaign for birth registration in August 2001. By the end of September, approximately 20,000 children had been registered.
  
  
• Separated children continued to be unified with their families as part of on-going MINARS programmes and eight new child-friendly spaces were established, providing integrated psycho-social services for children most affected by the conflict.
  
  
• Members of the police, judiciary and military received training in protection and human rights and tens of thousands of beneficiaries, at least 60 percent of whom were women, also benefited from awareness campaigns and training.

Mine Action

• Mine surveys were conducted in Kuanza Norte, Huíla and Cunene Provinces and mine clearance activities were conducted in accessible areas in eight provinces. More than 260,000 people participated in mine awareness activities.
  
  
• In August, an Inter-Sectoral Commission on Demining and Humanitarian Assistance (CNIDAH) was established by the Council of Ministers with responsibility for coordinating policy related to mine action and assistance to mine victims.

Refugees

• Approximately 6,500 refugees benefited from food distributions and other integrated assistance, including healthcare, education, protection and counselling services. Micro-credit programmes targeting refugees were also established and Government representatives were trained in refugee status determination.

Coordination

• The Humanitarian Coordination Group, co-chaired by the Minister of Social Affairs and Reintegration and the Humanitarian Coordinator a.i., met in Luanda in April to agree on the work plans for the three national Sub-groups on Food Security and Agriculture, Health and Nutrition, and IDPs and Refugees.
  
  
• In April, the second National Plan of Emergency Action was drafted under the leadership of UTCAH. The Plan focused on Government actions in seven sectors and established an overall framework for humanitarian operations from May 2001 - May 2002.
  
  
• In August, all UTCAH Provincial Coordinators and 12 national facilitators from Private Agencies Collaborating Together (PACT) received training on Sphere standards and the Norms. Following the training, 11 provincial workshops for national NGOs on Sphere were led by UTCAH Coordinators.
  
  
• In August, the second Provincial Planning Workshop was attended by more than 120 Government delegates and UN field staff from all provinces. On the basis of the training, Provincial Emergency Plans of Action were drafted in each province during September under Government leadership. The Provincial Plans identify humanitarian priorities and outline the concrete steps that partners will be taking during the coming year.

Reflecting the importance of the humanitarian operation in Angola, several high level UN missions occurred. In March, the Senior Inter-Agency Network on Internal Displacement undertook a mission to assess the nature and magnitude of the assistance and protection needs of internally displaced persons (IDPs) and review the operational capacity of humanitarian actors. The team also reviewed progress made in implementing the recommendations made by the Representative of the Secretary-General on Internally Displaced Persons, following his visit to Angola in November 2000. In August, the Executive Director of UNICEF undertook a mission aimed at supporting the polio eradication campaign and helping to launch the new birth registration campaign. In addition, the UNICEF Executive Director undertook an assessment of the situation of children in Angola, and at the request of the Under-Secretary-General for Humanitarian Affairs and Emergency Relief Coordinator, reviewed general humanitarian conditions.

Lessons Learned

As part of on-going efforts to improve monitoring, agencies routinely reviewed progress against the priorities identified in the 2001 Consolidated Inter-Agency Appeal. An important step forward in monitoring was made in February with the adoption of a new, joint information-sharing format. The format, which was developed in close collaboration with UTCAH and incorporates Sphere standards and other internationally recognised methodologies, covers key indicators in nine sectors. The quarterly format was prepared at the provincial level by UTCAH and OCHA in close consultation with humanitarian partners and submitted to MINARS, which presented the composite findings during meetings of the Humanitarian Coordination Group. On the basis of the format, humanitarian operations were adjusted to fit changing conditions.

In addition to the format, analysis of the humanitarian situation was undertaken during regular coordination meetings at the strategic and operational levels, both centrally and provincially. Twenty coordination forums met at the Luanda level to ensure integrated programming and sectoral coherence. At the provincial level, at least five, and in some provinces, up to ten forums, met on a routine basis. Coordination forums were used to continually review humanitarian conditions, agree on concrete actions and monitor the impact of interventions. Through these forums, important lessons were learned as agencies attempted to implement the priorities agreed with the Government. Many of these lessons are already being addressed at the operational level, while others have been used to develop a realistic and pragmatic framework for 2002.

1. Although agencies have been able to stabilise many of the most acutely distressed populations in accessible areas, the lack of significant and long-lasting improvements in the humanitarian situation has demonstrated the need for sustained efforts by all parties to bring the war to a close, followed by a massive rehabilitation and reconstruction programme aimed at alleviating poverty and raising living standards.

2. The unexpected changes in the humanitarian situation caused by unpredictable and widespread insecurity and wide disparities between provinces have confirmed that flexible programming is the most effective and only realistic strategy for meeting the needs of vulnerable populations in Angola.

3. The targeting of resettlement sites and rehabilitation projects has confirmed that recovery and development programmes can only be undertaken in areas where authorities have taken concrete steps to secure perimeters.

4. The marked increase in reported violations of human rights has underlined the need for a rights-based strategy to humanitarian assistance and for strengthened protection of vulnerable groups through implementation of provincial protection plans, judicial reform, community mobilisation, capacity-building, dissemination and advocacy.

5. Non-compliance with the Norms for the Resettlement of Displaced Populations in certain areas has demonstrated the need for increased dissemination of the Norms, capacity-building with Government institutions, particularly at the provincial level, and joint advocacy.

6. The continuation of unacceptably high morbidity and mortality rates, particularly among women, children, the elderly and displaced, has underlined the need for additional Government support to the social sectors and increased funding for programmes in water and sanitation and mother and child healthcare.

7. Extreme vulnerability among populations accessible to humanitarian agencies has demonstrated the need for concrete strategies aimed at reaching the most vulnerable including improvements in vulnerability analysis, assessment methodologies and targeting strategies.

8. The suspected deterioration of humanitarian conditions in areas where international agencies do not have access has underlined the need for the Government to assume full responsibility for the delivery of frontline direct assistance.

9. Increasing destitution among resident and displaced populations has demonstrated the importance of finalising and implementing a realistic Poverty Reduction Strategy and of ensuring that on-going structural reforms do not lead to rapid price increases of core commodities, creating further hardship for the most vulnerable members of society.

10. Although significant improvements in vaccination coverage have been made through cross-border initiatives, military outreach and the use of civil society networks, inaccessibility to approximately 20 municipalities and poor coverage in a number of others have confirmed that stronger Government support at the provincial level is required and that a general access framework may be an important step forward in efforts to vaccinate all Angolan children.

11. Continuing high levels of food insecurity among displaced populations have confirmed the need for an integrated strategy of promoting agricultural production including large-scale land distribution, a timely and effective agricultural campaign, a buffer stock of good quality seeds, seed multiplication programmes and mechanisms for assessing and monitoring production.

12. Although the Government has continued to provide direct emergency support through MINARS and Phase II of the PNEAH, the lack of information-sharing and integration with other humanitarian programmes has hampered strategic coordination and demonstrated the need for concrete steps at the central level to strengthen the HCG and national Sub-groups and ensure complementarity between Government, UN and NGO programmes.

13. Continuing difficulties in developing concrete linkages between the humanitarian operation and programmes in poverty alleviation and rehabilitation have underlined the need for the Government to rationalise policy frameworks and establish mechanisms for coordinating external donor assistance.

14. Cutbacks in emergency and recovery programmes due to insufficient funding have put hundreds of thousands of vulnerable populations at further risk and confirmed the need for stronger donor support of key life-saving programmes.

15. Delays in responding to sudden onset emergencies, including the crises in Mussende and Camacupa, have demonstrated that a rapid reaction emergency response mechanism, based on realistic contingency plans and an early warning system, needs to be urgently developed.

16. The failure to develop a realistic planning scenario for 2001 has confirmed the need for improved data collection, rigorous analysis and joint monitoring with the Government of security and social conditions at the provincial level.

17. The suspected increase in the spread of sexually transmitted diseases (STDs) has underlined the need to strengthen surveillance of HIV/AIDS, boost prevention activities, and support Government efforts to operationalise the national programme.

18. Significant improvements in the National Plan of Emergency Action and Provincial Emergency Plans of Action, the introduction of the joint information-sharing format, the drafting of the regulamento for the Norms, the development of Provincial Protection Plans and the use of Sphere standards in monitoring have demonstrated that capacity-building for Government authorities is effective and should be targeted directly at the core competencies required for coordination including planning, implementation and monitoring.

19. High civilian casualties and delays in resettlement due to lack of verification and demining have demonstrated the need to integrate mine action programmes into the humanitarian operation and to set demining priorities at the provincial level.

20. Continuing illiteracy among large segments of the population and difficulties in the restructuring and expansion of the formal education sector have underlined the importance of supporting non-formal educational systems.

21. The on-going exclusion of beneficiary groups from the planning and monitoring of humanitarian assistance has confirmed the need for a coherent, concrete strategy aimed at ensuring the full participation of beneficiaries in all aspects of humanitarian operations.

22. The continuing lack of capacity within national NGOs has confirmed the need for a coherent, concrete strategy aimed at developing direct field experience.

23. The spread of guerrilla warfare into previously secure areas, including urban centres and resettlement sites, has underlined the need for a strengthened UN security management system, capable of providing humanitarian partners with relevant information.

TABLE OF CONTENTS

Executive Summary
YEAR IN REVIEW

• Lessons Learned

THE HUMANITARIAN SITUATION

• Vulnerability Analysis
• 2001 Rapid Assessment of Critical Needs
• Humanitarian Sectors
• Core Assumptions for 2002
• Planning Scenarios
• Constraints

COMMON HUMANITARIAN ACTION PLAN

• Main Goals
• Humanitarian Strategy
• Operational Approach
• Programme Priorities and Framework
• Roles and Competencies

SECTORAL STRATEGIES

• Integrated Approach
• Food Security
• Nutrition
• Health
• Water and Sanitation
• Education
• Protection
• Mine Action
• Emergency Response and Disaster Preparedness
• Resettlement (including Micro-Credit)
• Refugees
• Coordination
• Security and Communications
• Logistics

PROVINCIAL PROFILES

• Bengo
• Benguela
• Bié
• Cabinda
• Cunene
• Huambo
• Huíla
• Kuando kubango
• Kuanza norte
• Kuanza sul
• Luanda
• Lunda norte
• Lunda sul
• Malanje
• Moxico
• Namibe
• Uíge
• Zaire

PROVINCIAL PROFILES

• Table I. Funding Requirements - By UN Appealing Organisation
• Table II. Funding Requirements - By Sector and UN and NGO Appealing Organisations
• Table III. List of Project Activities - By Sector
• Table IV. List of UN Project Activities - By Appealing Organisation

PROJECT SUMMARIES

• Food Security
• Health and Nutrition
• Water and Sanitation
• Education
• Protection
• Mine Action
• Emergency Response and Disaster Preparedness
• Resettlement (including Micro-credit)
• Refugees
• Coordination, Security and Support Services

ANNEX I. Donor Response to the 2001 Appeal

ANNEX II. ICRC Humanitarian Activities Funded Outside of the UN Appeal for Angola

ANNEX III. European Union Humanitarian Activities Funded Outside of the UN Appeal for Angola

ANNEX IV. International Federation of Red Cross and Red Crescent Societies

ANNEX V. Acronyms and Abbreviations

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