Consolidated Appeals Process (CAP)
The CAP is much more than an appeal for money. It is an inclusive and coordinated programme cycle of:
a) strategic planning leading to a Common Humanitarian Action Plan (CHAP);
b) resource mobilisation (leading to a Consolidated Appeal or a Flash Appeal);
c) coordinated programme implementation;
d) joint monitoring and evaluation;
e) revision, if necessary; and
f) reporting on results.
The CHAP is a strategic plan for humanitarian response in a given country or region and includes the following elements:
a) A common analysis of the context in which humanitarian action takes place;
b) An assessment of needs;
c) best, worst, and most likely scenarios;
d) Stakeholder analysis, i.e. who does what and where;
e) A clear statement of longer-term objectives and goals;
f) Prioritised response plans; and
g) A framework for monitoring the strategy and revising it if necessary.
The CHAP is the foundation for developing a Consolidated Appeal or, when crises break or natural disasters occur, a Flash Appeal. The CHAP can also serve as a reference for organisations deciding not to appeal for funds through a common framework. Under the leadership of the Humanitarian Coordinator, the CHAP is developed at the field level by the Inter-Agency Standing Committee (IASC) Country Team. This team mirrors the IASC structure at headquarters and includes UN agencies, and standing invitees, i.e. the International Organization for Migration, the Red Cross Movement, and NGOs that belong to ICVA, Interaction, or SCHR. Non-IASC members, such as national NGOs, can be included, and other key stakeholders in humanitarian action, in particular host governments and donors, should be consulted.
The Humanitarian Coordinator is responsible for the annual preparation of the consolidated appeal document. The document is launched globally each November to enhance advocacy and resource mobilisation. An update, known as the Mid-Year Review, is presented to donors in June of each year.
Donors provide resources to appealing agencies directly in response to project proposals. The Financial Tracking Service (FTS), managed by the United Nations Office for the Coordination of Humanitarian Affairs (OCHA), is a database of donor contributions and can be found on www.reliefweb.int/fts
In sum, the CAP is about how the aid community collaborates to provide civilians in need the best protection and assistance available, on time.
1. EXECUTIVE SUMMARY
In order to formulate a solid humanitarian response to the need of all affected populations, the Consolidated Appeals Process (CAP) 2005 for Côte d'Ivoire was prepared by collecting data through the Needs Assessment Framework and Matrix (now renamed the Needs Analysis Framework ([NAF]) in five geographical zones, divided into the west (Man to Tabou), the north (Bouaké to Korhogo), northeast (Bondoukou to Bouna), centre (Yamoussoukro to Daloa) and south (greater Abidjan area).
Since the signature of the Pretoria agreement on 6 April 2005, a number of positive developments in Côte d'Ivoire have led to the resumption of the peace process centered essentially around the eligibility of all signatories to the Linas Marcoussis peace accord in the upcoming presidential elections and the establishment of a timetable for the Disarmament, Demobilisation and Reintegration (DDR) process, scheduled to begin at the end of June 2005.
The escalation of inter-communal conflicts in the west, the centre and in the Zone of Confidence since February 2005 with significant internal displacement and an increasing number of human rights violations in the Forces Nouvelles (FN) areas, the persistence of checkpoints and continued harassment, and the non- respect at times of the symbols, assets and personnel of humanitarian organisations are some of the key concerns of the humanitarian community. As a result, the protection of civilians will guide the programming of humanitarian agencies and organisations, while it will underpin all advocacy efforts.
Meanwhile, almost three years into the crisis, people's living conditions - particularly in the north and west - are becoming increasingly difficult with a significant disruption in the provision of potable water in rural as well as urban areas, and limited access to health and education services. The national committee for the redeployment of the administration (Comité National pour le Redéploiement de l'Administration) has decided to re-deploy 17,000 civil servants to the north and 3,800 to the west, but it is unclear when the decision will become effective. This is critical since civil servants are needed to run and operate schools, hospitals, and other government facilities. The food situation of households has remained on the whole stable, but is fragile with population displacements and excessive transportation costs as a result of checkpoints and bribes needed to be paid to continue one's journey.
Concurrently, the Country Team and donors, under the leadership of a strategic think-tank facilitated by the World Bank, have developed a common paper to deal with some critical questions affecting humanitarian activities, and transition toward development and recovery programmes by producing five aide-mémoires on the sectors of protection of civilians with a particular focus on internally displaced persons (IDPs), education, water-electricity, health, and the redeployment of civil administration. These aide-mémoires were addressed to the President Laurent Gbagbo and the Prime Minister Seydou Diarra calling for specific actions to be taken by the Government of National Reconciliation, to which the FN belong, while indicating the support of the international community to assist in their implementation to ensure access to basic services, as well as strengthen the protection of affected vulnerable populations.
The Financial Tracking Service (FTS) shows that as of 10 June 2005, the CAP mobilised US$ 10,763,273 out of a requested US$ 36.5 million in the areas of food security, multi-sectoral assistance, water and sanitation, and coordination, leaving unmet requirements of US$ 25,707,433.
2. CHANGES IN CONTEXT AND HUMANITARIAN CONSEQUENCES
Political
Aiming to restore the peace process, President Laurent Gbagbo, Prime Minister Seydou Diarra, former President Henri Konan Bédié, Alassane Ouattara, leader of the Rassemblement des Républicains (RDR) and the head of the New Forces, Guillaume Soro, took part in the peace talks held in South Africa from 3 to 6 April 2005, under the auspices of South African President Thabo Mbeki, mediator of the African Union (AU). This mediation registered significant progress leading to the eligibility of all signatories in the presidential election planned for October 2005, the commitment to end armed conflict and the resumption of the DDR process. The National Commission on DDR (CNDDR), organised a meeting between the Ivoirian Army and the Armed Forces of the Force Nouvelles in May, which produced a detailed timetable on the DDR and also discussed the reform of the army. The starting date for DDR is slated for end of June 2005 and is preceded by a sensitisation campaign. Subsequently it was decided that a special committee would be established to examine in detail the reform of the army so that it would not hold up the DDR process. Meanwhile, opposition parties have expressed doubts as to the role and the impartiality of the National Institute of Statistics designated by the President Laurent Gbagbo to prepare the October presidential elections, including the preparation of electoral lists and production of voters' cards, thus opposition parties have been slow to collaborate with this structure. One of the requirements of the Pretoria Accord is the commitment to revise and adopt new laws on the composition of the Independent Electoral Commission, on nationality, and the identification and status of foreigners in Côte d'Ivoire. This has however not happened yet. The challenges mentioned above forecast a tense, and probably violent election campaign with possible negative implications on the peace process and the humanitarian situation.
Socio-economic
The protracted crisis has further impoverished Ivoirians, according to a United Nations Development Programme (UNDP) report indicating that the poverty level has jumped from 38% to 44% since 1999. According to the Ministry of Economy and Finance and the International Monetary Fund (IMF), the growth rate is estimated at 1.6 % against a projection of 1.8 % for 2004, a significant drop from the 6% growth rates registered in the late 1990s. The November events also dealt a blow to the private sector, which was affected by the destruction of hundreds of small and medium-sized businesses and the relocation of others, leading to a significant job loss, estimated at 100,000 by the National Office of Social Welfare (Caisse Nationale de Prévoyance Sociale). Moreover, several economic reports have indicated that, for the period from October 2004 to April 2005, the quantity of cocoa beans delivered to the ports did not exceed 1 million metric tones (MTs), which represents a drop of 10% compared to the same period last year. Meanwhile, a joint Food and Agriculture Organization (FAO), World Food Programme (WFP), and Ministry of Agriculture (MoA) mission on crop assessments in February 2005 found that the overall cereal production had decreased by 15%.
Humanitarian Consequences
Despite the progress noted with the resumption of the peace process, a worrying climate of insecurity and impunity persists. According to various reports by human rights organisations, grave human rights violations and breaches of international humanitarian law (IHL) - such as summary executions of civilians, excessive use of force, torture, rape, forced labour among children, trafficking of children, and the destruction of homes and property - continue in both the government-controlled and FN areas in an environment of general impunity. In addition, the escalation of inter-ethnic and intercommunity conflicts destroying even further the social fabric in the west is a serious setback in reconciliation efforts and towards re-building trust between communities. The western region of the country is the eye of the storm and will continue to remain very volatile, unpredictable and fragile, with possibly continued attacks, displacement and continued militia activity.
It is estimated that there are about 500,000 vulnerable IDPs in the country. About 120,000 vulnerable displaced persons live in Abidjan, of which a considerable number live in poor neighbourhoods and find themselves in an extremely vulnerable state, exacerbated by pressure on the meagre resources of host families and an absence of United Nations or Government assistance. About 30,000 displaced persons live in Yamoussoukro, while those displaced from Bouaké to M'Bahiakro and Prikro are estimated at 2,468. Moreover, militia attacks and inter-community conflicts in the west have resulted in the flight of thousands of civilians at each attack. Though most tend to return to their home areas after a few weeks or months, some of the displaced are gathered at sites not designed to receive such large numbers, or are temporarily with host families. In the temporary transit centre of Guiglo the number of displaced has exceeded the site's capacity, reaching 6,700 people at a site set up to shelter 6,000. United Nations Population Fund (UNFPA) is in the process of launching a registration exercise, which should result in a report with precise figures on the number of displaced, their profile and their areas of return.
Meanwhile, the health system is unable to meet the needs of the most vulnerable, particularly in the north and west, with children under five, who are less and less protected following the interruption of routine immunisation programmes and the weakness of the epidemiological surveillance system. Meanwhile, according to World Health Organization (WHO), the global and moderate malnutrition rates among children under five remain high with 22% of chronic malnutrition and 7% of acute malnutrition. In addition, the Human Immuno-deficiency Virus/Acquired Immuno-Deficiency Syndrome (HIV/AIDS) prevalence rate has reached 7%, which may increase further as the deterioration of the situation causes an important displacement of the population.
Where the health facilities and staff are present, lack of water has serious implications on the functioning of the main hospital and on the treatment available to the local populations. Furthermore, the breakdown of the system has considerably slowed down the collection of medical information and data, including on epidemics, resulting in a slow response to such outbreaks.
Since February 2005, water cuts are very frequent in the areas under FN control. It is estimated that 9,000 water pumps are not operational throughout the territory. Their breakdown rate has risen from 35% to 70%. In urban areas, households are increasingly hard-hit by shortages of potable water. Most cities (Abobo, Yopougon, Anyama, Kouassi-Kouassikro, Kouassi-Datékro, Guiglo, Bouaké, Bouna, Nassian, Téhini, San Pedro, Tabou, etc.) are experiencing a drinking water shortage due to breakdowns in the water works and insufficient capacity of hydraulic infrastructures. Limited access to potable water, particularly for women and children affected by the war, has resulted in the resurgence of endemic diseases, epidemics, and in a negative impact on education. Fetching water is increasingly a chore done by children, notably girls, detrimental to their schooling, and leads to a high dropout rate amongst girl children. More than 50% of the women and children in rural areas do not have access to potable water, while only 30% of primary schools have potable water.
In the zones under FN control, the Ministry of Education (MoE) has still not organised the 2003-2004 school examinations, stating that it was impossible to do so due to the prevailing insecurity since the events of November 2004, and insisting on the beginning of disarmament as a precondition. However, there has been a slight shift in that position but it is unclear when the deployment of teachers and school administration will take place.
Meanwhile, a seminar on the education system in the FN zone, organised on 12-14 May 2005 in Korhogo by the presidents of school rescue committees, highlighted the fundamental difficulties constraining school operations in these areas:
a. the degradation of school buildings;
b. the shortage of educational materials;
c. the departure of some education officials and institutions;
d. the occupation of some school premises;
e. the destruction of school records; the lack of tenured personnel;
f. the mass recruitment of voluntary teachers, paid by parents and trained on-the-job.
Food security of households has remained by and large stable but fragile. A joint crop assessment mission- carried out by the ministries of agriculture and livestock, FAO and WFP - found that cereal production in 2004 continued to decrease, compared with the five-year average before the crisis. The decrease in production was estimated at 10% for rice and 12% for corn. Meanwhile, the production of plantains, root vegetables and tubers has attained more or less the same level as before the crisis.
The western regions of Moyen Cavally, 18 Montagnes and Haute Sassandra are the most affected by food insecurity as a result of attacks, counterattacks and massive displacement. It is estimated that more than 30,000 people recently displaced lost a good part of their harvest and are at risk of missing out on the planting season. In the northwest of the country, lack of rain since December 2004 has led to a marked decrease in food production and has reduced the farmers' production capacity.
Restricted mobility, prevailing insecurity, and the increasingly deteriorating Ivoirian economy have hampered the implementation of the protection and assistance programmes benefiting refugees in the western part of the country, and have also continued to weaken and even annul most efforts on the integration of urban refugees. Activities related to repatriation of Liberian refugees as well as reintegration of Ivoirian returnees have been disrupted several times by the escalation of inter-ethnic and intercommunity conflicts. Some evident results were nevertheless achieved. The registration and verification exercise of Liberian refugees has shown that close to 18,000 refugees have returned to Liberia spontaneously since last year. Population data on the other groups of refugees is available. Registration will allow the issuance of documentation to all the refugees. With regard to the resettlement programme of Liberian refugees to the United States of America (USA), 152 refugees have benefited from this programme to date, bringing the total to more than 6,500 refugees resettled over the last two years.
TABLE OF CONTENTS
1. EXECUTIVE SUMMARY
2. CHANGES IN CONTEXT AND HUMANITARIAN CONSEQUENCES
3. COMMON HUMANITARIAN ACTION PLAN
- 3.1 Scenario "A Stalled Peace Process, Instability In The west"
- 3.2 Strategic Priorities
4. RESPONSE PLANS
- 4.1 Food Security
- 4.2 Coordination
- 4.3 Education
- 4.4 Health
- 4.5 Protection
- 4.6 Water and Sanitation
- 4.7 Refugees
5. CONCLUSION
6. CAP 2005 PROJECTS REVISED MID-TERM
- 6.1 Agriculture
- 6.2 Coordination and Support Services
- 6.3 Education
- 6.4 Health and Nutrition
- 6.5 Protection
- 6.6 Multi-sector
- 6.7 Water and Sanitation
ANNEX I. Table I. Summary of Requirements and Contributions by Appealing Organisations and by Sector
ANNEX II. Crisis in Côte d'Ivoire (Map of Movements of Displaced Populations)
ANNEX III. Comparative Figures of Education in the North of Côte D'ivoire
ANNEX IV. Côte d'Ivoire Crisis (Initiatives of the DHH in the Water and Sanitation Sector)
ANNEX V. Acronyms and Abbreviations
Note: The full text of this appeal is available on-line in Adobe Acrobat (pdf) format and may also be downloaded in zipped MS Word format.
Full Original Mid-Term Review [pdf* format] [zipped MS Word format]
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