U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT
BUREAU FOR DEMOCRACY, CONFLICT, AND HUMANITARIAN ASSISTANCE (DCHA)
OFFICE OF U.S. FOREIGN DISASTER ASSISTANCE (OFDA)
Sudan - Complex Emergency
Situation Report #1, Fiscal Year (FY) 2003    - October 11, 2002


Note: This Situation Report updates USAID/OFDA Situation Report #5, dated
August 15, 2002.

BACKGROUND

For more than 19 years, the Sudanese population has been negatively
impacted by war, famine, and disease, largely associated with the civil
war between the Government of Sudan (GOS) and Southern Peoples Liberation
Movement/Army (SPLM/A).  Since 1983, more than two million people have
died from war-related events, and more than four million people have been
displaced due to the continued fighting, raiding, and GOS aerial bombings.
Sudan has experienced three periods of famine over the last 13 years; Bahr
el Ghazal in 1988-1989 and 1998, and Upper Nile in 1992-1993.  Since 1999,
GOS military operations aimed at securing oil drilling, exploration, and
exploitation have further increased displacement in western Upper Nile.

In response to the 1988-1989 Bahr el Ghazal famine, the United Nations
(U.N.) established Operation Lifeline Sudan (UN/OLS), a tripartite
agreement of negotiated access among the GOS, the SPLM, and the U.N.
Under this framework, a consortium of U.N. agencies and more than 40
international and indigenous non-governmental organizations (NGOs)
provide emergency relief and rehabilitation assistance in Sudan.  In
addition, due to frequent and repeated denial of access by the GOS, more
than ten international NGOs provide humanitarian assistance outside of the
UN/OLS consortium.  Since the civil war began in 1983, the United States
Government (USG) has provided more than $1.6 billion in humanitarian
assistance to the Sudanese population.

Since 2001, through President George W. Bush's appointment of USAID
Administrator Andrew Natsios as Special Humanitarian Coordinator and
former U.S. Senator John Danforth as Special Envoy for Peace, the United
States Government (USG) has been at the forefront of serious and sustained
negotiations between the GOS and SPLA to increase humanitarian access to
war-affected areas, and to support the peace process.  This involvement
has led to a formal cease-fire agreement for the Nuba Mountains, a
framework for the cessation of attacks against civilians, the
establishment of periods of tranquility, and an international inquiry on
slavery in Sudan.  In addition, U.S. involvement helped to create a
favorable environment for peace talks under the auspices of the regional
Intergovernmental Authority on Development (IGAD) that produced the
Machakos Protocol signed by both the GOS and SPLA on July 20, 2002.


NUMBERS AT A GLANCE
SOURCE

Complex Emergency-related Deaths (since 1983)
  Total: More than 2,000,000
U.S. Committee for Refugees

Internally Displaced Persons (IDPs)
  Total: More than 4,000,000
  Greater Khartoum: More than 2,000,000
  Transitional zone and southern areas: More than 1,500,000
  Garrison Towns: More than 300,000
2002 United Nations Consolidated Inter-Agency Appeal for Sudan

Sudanese Refugees
  442,500 - Total
  155,400 - Uganda
   84,200 - Ethiopia
   70,000 - Democratic Republic of the   Congo
   68,200 - Kenya
   34,000 - Central African Republic
   30,000 - Chad
      700 - Eritrea
United Nations High Commissioner for Refugees (UNHCR)


Total FY 2002 USAID/OFDA Humanitarian Assistance to Sudan
$38,386,321

Total FY 2002 USAID/FFP Humanitarian Assistance to Sudan
$59,784,378

Total FY 2002 USDA Humanitarian Assistance to Sudan
$38,900,000

Total FY 2002 State/PRM Humanitarian Assistance to Sudan
$2,600,000

Total FY 2002 USG Humanitarian Assistance to Sudan
$139,670,699




CURRENT SITUATION

Eastern Equatoria

The humanitarian situation in Eastern Equatoria has deteriorated
significantly since the SPLA captured the town of Torit on September 1.
As a result of intensified fighting around the GOS attempts to retake
Torit, the GOS imposed a flight and operational ban on all OLS and ICRC
humanitarian operations from September 26 through October 6.  This ban
shut down all humanitarian operations out of Lokichoggio, Kenya,
effectively suspending both OLS and non-OLS programs in opposition-held
areas of Sudan for nine days.  WFP indicated that the GOS ban on OLS
humanitarian operations deprived more than 500,000 people in southern
Sudan of emergency food assistance.  According to international media
sources, the GOS retook the town of Torit on October 8.

International aid organizations are concerned that intense fighting in
Eastern Equatoria, GOS denial of access to locations in need, and the
continued use of aerial bombardment by the government against civilians
will prevent organizations from delivering humanitarian assistance to
affected populations.  The October GOS flight clearance list denies
flights south of the Narus, Mogos, Lafon, Juba, and Yei.  This is an
expansion of previous restrictions and completely blocks air access to
Eastern Equatoria.  For years, the government has denied OLS air access to
the line south of Kapoeta, Torit, Juba, and Yei.


Western Upper Nile

According to a September 17 USAID Famine Early Warning System Network
(FEWSNET) report, the food security situation in western Upper Nile is
precarious due to heavy fighting in August between GOS and SPLA forces.
As a result of the fighting, more than 77,000 civilians fled into Twic and
Gogrial counties, Bahr el Ghazal, in late July and early August.  In
addition, more than 50,000 civilians fled to Tonj County, Lakes Region,
causing further strain on the food security situation in the Lakes Region.

Lack of humanitarian access to western Upper Nile has been a significant
constraint to the delivery of assistance.  In the September and October
clearance list, the GOS denied flight access to nine locations in western
Upper Nile and indicated that an additional 18 locations were
unidentifiable, and therefore, restricted from receiving humanitarian
assistance.

In May, the government banned all flights to western Upper Nile from
Kenya, effectively stopping all assistance to opposition areas.  In late
June, the GOS approved a five-day UN/OLS operation for emergency
assistance to five locations in SPLM/A areas of Western Upper Nile.
However, this was not sufficient to meet the humanitarian needs of the
affected population.


Eastern Sudan

According to international media sources, in early October heavy fighting
between GOS and National Democratic Alliance (NDA) forces in Kassala State
forced thousands of civilians to flee.  NDA forces are believed to have
captured the towns of Hamashkhoreib and Shallob.  The GOS has accused the
Government of Eritrea (GOE) of backing the rebel movement, which the GOE
denied.  USAID/OFDA is monitoring the humanitarian situation closely.


Nuba Mountains

In its October flight clearance, the GOS has insisted that humanitarian
inputs to the Nuba Mountains arrive via El Obeid in northern Sudan.  In
effect, this restriction denies humanitarian access from the southern
sector.  These restrictions placed on the delivery of aid to opposition-
controlled areas of the Nuba Mountains are in violation of the cease-fire
agreement signed by the Government of Sudan and the Sudan People's
Liberation Movement (SPLM) in January 2002.  Following significant
international pressure, the GOS is expected to reverse this decision.


Peace Negotiations

On July 20, following five weeks of negotiations under the auspices of the
Sudan Peace Committee of the regional Inter-Governmental Authority on
Development (IGAD) in Machakos, Kenya, the GOS and SPLM signed a
significant framework for a peace agreement.  The "Machakos Protocol"
addresses two of the most contentious issues; recognizing the right to
self- determination for southern Sudanese and agreeing to the relationship
between state and religion.

GOS negotiators withdrew from peace talks in Machakos, Kenya one day after
the SPLA capture of Torit on September 1.  GOS and SPLM officials had been
in Mackakos since the middle of August to work out details for a
comprehensive political settlement to the nearly two-decade old war, under
the terms of the Machakos Protocol.  However, cessation of hostilities was
not on the agenda to be discussed until political and resource-sharing
arrangements were agreed upon, and both the GOS and SPLA used August and
September to advance their military goals.

Following intense political pressure from members of IGAD, both sides have
verbally committed to the resumption of talks on October 14 and to a stand
down of military activities.  International actors were very active in
persuading the two sides to resume peace talks, in spite of the ongoing
battles in western Upper Nile, Eastern Equatoria, and eastern Sudan.
Without a formal written agreement, the international community remains
cautiously optimistic that the peace talks will resume.



CONSTRAINTS TO HUMANITARIAN ASSISTANCE

Humanitarian Access

The October flight clearance list for OLS humanitarian operations into
southern Sudan expanded the three year-old ban on all flights to Eastern
Equatoria, placed new restrictions on flights to the Nuba Mountains, and
denied access to 61 specific locations in opposition-controlled areas,
making this the most restrictive monthly flight clearance placed on OLS in
many years.

The GOS flight ban on humanitarian operations to Eastern Equatoria from
September 26 to October 6 shut down both OLS and non-OLS humanitarian aid
deliveries to southern Sudan.  On October 5, the GOS modified the ban to
allow for humanitarian flights over Equatorian airspace.  However, the GOS
completely blocked the delivery of assistance to Eastern Equatoria by
expanding the number of areas denied access to include all serviceable
airstrips in the region.  The U.N. reported that the nine-day suspension
of humanitarian flights by the GOS denied more than 3 million people
access to humanitarian assistance, stranded more than 500 humanitarian aid
workers, and prevented the delivery of over 150 tons of emergency food and
non-food supplies per day.

In response to the nine-day shut down of OLS operations and the
restrictive October flight clearance list, USAID Administrator and Special
Humanitarian Coordinator for Sudan Andrew Natsios issued statements on
September 27 and October 3, stressing that the U.S. seeks full
humanitarian access to southern Sudan.  The U.S. also urged the GOS to
cease all obstructive tactics to relief operations in the areas held by
the opposition and condemned the significant increase in attacks on
civilians by the GOS.

Since February 2002, access by international agencies to civilians in need
has eroded due to increased flight denials by the GOS.  Prior to the
nine-day total flight ban, the government denied humanitarian access to 19
locations in September, primarily in western Upper Nile and Bahr el
Ghazal, as well as the denial of any location south of the
Kapoeata/Torit/Juba line.  In addition, 39 locations were not known to the
GOS, which effectively denied humanitarian assistance to an addition 18
locations in Bahr el Ghazal, 18 locations in western Upper Nile, and three
locations in Equatoria.


Attacks Against Civilians

According to international human rights organizations, GOS aerial attacks
against civilians have increased substantially since the GOS withdraw from
peace negotiations in Machakos.  From September 9 to 24, 21 separate
attacks have been reported, primarily in western Upper Nile and Eastern
Equatoria.  Full implementation of the agreement to protect civilians and
civilian facilities from military attack, signed by both the GOS and SPLA
on March 29, 2002, has been delayed due to GOS points of clarification on
the establishment of a monitoring system.


Insecurity

Numerous international humanitarian aid organizations have evacuated staff
from their respective areas of operation due to the increase in GOS aerial
bombings over the last month.  In addition, the flight denials in Eastern
and Western Equatoria placed humanitarian relief workers in danger because
international organizations were unable to evacuate staff if needed.

U.N. reports indicate that due to insecurity along the Maridi/Yambio
corridor caused by a group of SPLA deserters, international aid
organizations have withdrawn staff from Yambio, Western Equatoria.  The
evacuation of staff from this traditionally stable location underscores
the fluid situation in southern Sudan.



USG HUMANITARIAN ASSISTANCE

In May 2001, President Bush named USAID Administrator Andrew S. Natsios as
Special Humanitarian Coordinator for Sudan (SHCS).  The role of the
Special Humanitarian Coordinator includes increasing stability in war and
drought-affected areas, improving the delivery mechanisms of humanitarian
assistance, coordinating USG assistance, coordinating external relations
with other donors, and increasing attention on human rights abuses.
Administrator Natsios visited Sudan in late May 2002 to press the
government for increased humanitarian access, as well as monitor
development programs in southern Sudan.

On September 6, 2001, President Bush appointed former Senator John
Danforth to be the Special Envoy for Peace to Sudan.  Senator Danforth has
put forth a series of initiatives to test the seriousness of the main
combatants about peace, including sustained peace in the Nuba Mountains,
periods of tranquility for special humanitarian programs, the cessation of
GOS attacks on civilian and humanitarian targets, and the establishment of
a Sudan slavery and forced abduction commission.

USAID has identified programmatic priorities until January 2003.  These
priorities will include continuing programs in the sectors of health, food
security, education, and economic revitalization; as well as new
initiatives linked directly to the peace process including improving
humanitarian access to populations in need, preparing the South for peace,
and expanding programs that cross GOS-SPLM front lines to reinforce local
reconciliation.

USAID/OFDA, as well as USAID's Office of Food for Peace (FFP), provide
humanitarian assistance under the guidelines of the Integrated Strategic
Plan and outlined programmatic priorities.  The United States Department
of Agriculture (USDA) and the Department of State's Bureau of Population,
Refugees, and Migration (State/PRM) provide additional USG humanitarian
assistance to Sudan.  USAID's Africa Bureau manages the development
portion of the Sudan Integrated Strategic Plan in opposition-held areas of
the country.  Funding provided in FY 2002 totaled more than $14.2 million,
including nearly $11.3 million in development assistance, $2.5 million in
Economic Support Funds, and $500,000 in Child Survival and Health Funds.

On October 1, 2002, U.S. Chargé d'Affaires Jeff Millington renewed the
disaster declaration for FY 2003 for Sudan.  The US Mission in Sudan has
declared disasters due to the complex emergency since 1987.



U.S. GOVERNMENT HUMANITARIAN ASSISTANCE TO SUDAN

Agency
Implementing Partner
Sector
Regions
Amount


FY 2002

USAID1	$98,170,699
USAID/OFDA2	$38,386,321

Southern Sector Programs

ACROSS
Primary Health
Jonglei
$300,000

ACF
Nutrition Surveillance
Southern Sudan
$353,388

ADRA
Primary Health, Animal Health
Upper Nile
$997,129

ARC
Primary Health, Wat/San
Eastern Equatoria
$1,386,044

CARE
Food Security, Primary Health
Jonglei
$1,716,915

Carter Center
Primary Health
Southern Sudan
$1,000,000

Christian Aid
Non-Food Items
Upper Nile
$235,050

CMA
Primary Health
Upper Nile
$540,355

CONCERN
Food Security
Southern Sudan
$1,400,000

CONCERN
Livelihoods
Southern Sudan
$605,286

CRS
Primary Health, Food Security
Southern Sudan
$2,139,838

FAO
Food Security, Coordination
Southern Sudan
$750,000

GOAL
Primary Health
Bahr el Ghazal, Southern Blue Nile
$1,410,427

IAS/MEDIC
Wat/San
Southern Sudan
$845,900

IRC
Primary Health, Livestock, Agriculture
Bahr el Ghazal, Upper Nile
$2,350,000

IRC/Tearfund
Food Security, Nutritional Surveillance, Health Education
Bahr el Ghazal
$321,939

MEDAIR
Food Security, Relief
Upper Nile
$535,000

NPA
Food Security, Peace Committee
Southern Sudan
$2,448,621

Samaritan's Purse
Food Aid, Agriculture
Southern Sudan
$1,401,066

SCF/UK
Food Security, Relief
Bahr El Ghazal, Upper Nile
$603,303

SCF/US
Primary Health
South Kordofan
$858,740

UNHABITAT
Infrastructure Improvement
Southern Sudan
$1,000,000

UNICEF
Multi-Sectoral
Southern Sudan
$2,500,000

World Vision
Non-Food Items
Upper Nile
$476,908

VSF/B
Animal Health
Bahr el Ghazal, Upper Nile
$350,000

VSF/G
Animal Health
Bahr el Ghazal, Eastern Equatoria
$735,000
Northern Sector Programs

ACF
Primary Health
Bahr el Jebel, Bahr el Ghazal
$857,275

ADRA
Primary Health, Wat/San
White Nile
$709,591

CARE
Primary Health, Food Security
Khartoum, Darfur
$2,404,199

FAO
Livestock, Coordination
Jonglei
$400,000

GOAL
Primary Health
Upper Nile
$163,920

GOAL
Primary Health
Kassala
$345,116

IRC
Food Security
Southern Sudan
$209,937

IRC
Primary Health, Wat/San
Upper Nile
$462,792

MEDAIR
Primary Health
Western Darfur
$222,015

SCF/US
Multi-Sectoral
South Kordofan
$600,000

SCF/US
Primary Health, Wat/San, Agriculture
Southern Kordofan
$710,949

SCF/UK
Primary Health
Southern Darfur
$254,952

UNDP
Coordination
Southern Darfur
$250,000

UNICEF
Primary Health, Nutrition
Bahr el Ghazal
$300,000

UNOCHA
Security
Sudan
$302,524

UNOCHA
Coordination
Sudan
$250,000

WFP
Logistics
Sudan
$540,000
Administrative Support

USDA
Technical Assistance
Washington, D.C.
$400,000

USAID/ARO
Technical Assistance
Southern Sudan
$364,337

USAID/Khartoum
Technical Assistance
Khartoum
$666,583

USAID/Washington
Technical Assistance
Washington, D.C.
$711,222
USAID/FFP	$59,784,378

ADRA
1,810 MT of Title II emergency food assistance
White Nile
$867,700

CRS
12,010 MT of Title II emergency food assistance
Eastern Equatoria
$10,215,500

NPA
6,140 MT of Title II emergency food assistance
Southern Sudan
$6,881,078

WFP
49,500 MT of Title II emergency food assistance
Sudan
$41,820,100
USDA/FAS	$38,900,000

WFP
43,000 MT of Section 416 (b) food assistance
Sudan
$38,900,000
State/ PRM3	$2,600,000

UNHCR
Refugee Operations
Sudan
$2,200,000

WFP
Refugee Operations
Sudan
$400,000

Total USG Humanitarian Assistance in FY 2002 (to date)	$139,670,699

1 USAID funding figure includes international disaster assistance funding
provided by USAID/OFDA and USAID/FFP and does not reflect $11.3 million in
development assistance funding, $2.5 million in Economic Support Funds,
and $500,000 in Child Survival assistance provided through USAID's Africa
Bureau.

2 USAID/OFDA funding indicates committed and/or obligated amounts as of
September 30, 2002.  Additional USG humanitarian assistance is not
expected in FY 2002.  USG humanitarian assistance will be reported in FY
2003 as it becomes available.

3 State/PRM figures include only Sudan-specific funding, and do not
include unearmarked funding for UNHCR and IFRC Africa programs.


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