WFP Regional EMOP for Hurricane Victims in Honduras, Nicaragua Guatemala and El Salvador (EMOP 6079)
Project Title: Emergency Food Assistance to households affected by "Hurricane Mitch"
WFP food quantity: 116,238 MT WFP Food Cost: US$ 31,157,500 Total Cost to WFP: US$ 58,389,930 Number of Beneficiaries: 1,125,000 persons in Honduras, Nicaragua, Guatemala and El Salvador Duration: 15 November 1998 - 15 May 1999
I. Background and Rationale for Providing Assistance
1. A tragedy of immense proportions has afflicted the four Central American countries of Honduras, Nicaragua, Guatemala and El Salvador. The irreparable loss of life and damage to basic infrastructure, agricultural production, and industrial and commercial entities has meant that over twenty years of development and investment has been virtually wiped out. Over three million persons have been directly affected as a consequence of Hurricane Mitch that ripped through the region during the month of October 1998. This has been an unprecedented catastrophe, affecting all Central American countries, but in particular Honduras and Nicaragua - two of the poorest countries in the hemisphere, where the Hurricane and accompanying floods and mudslides have affected virtually their entire territories. El Salvador and Guatemala have suffered important losses in human lives and infrastructure. Also, Costa Rica, Belize, Mexico and Jamaica have been affected but to a lesser extent.
2. This disastrous situation, coming on the heels of a prolonged drought cycle caused by the El Nino meteorological phenomenon, has taxed considerably the capacity of local Governments and communities to cope with emerging needs for basic necessities among the population. In fact the damage and economic and social dislocation brought about by hurricane Mitch exceeds the combined effects of all-previous floods and hurricanes in the Region's history in terms of human and economic losses.
3. Even though Central America is located in an area often affected by tropical storms; Hurricane Mitch reached a category 5 level (the highest level). It was only one of four hurricanes that have reached this category during this century in Central America. At the height of its force on October 26 and 27, wind velocity reached 180 mph, pounding with heavy rains most of Central America, mainly Honduras and Nicaragua. Mitch slowly swept over Honduras on October 30, producing torrential rains, causing catastrophic floods and landslides, and leaving a path of destruction and death throughout the region. It then continued up the Salvadoran and Guatemalan Pacific coasts crossing over Mexican territory back into the Caribbean Sea.
4. Although definite assessments have not yet been completed, it is feared that the total death toll could reach in excess of 20,000 persons. As of November 7, the preliminary data on the human impact is the following:
El Savador - dead: 239; missing: 135; affected: 85,000 Guatemala - dead: 228; missing: 64; affected: 120,000 Honduras - dead: 6,238; missing: 11,085; affected: 1,932,482 Nicaragua - dead: 1,848; missing: 1,287; affected: 799,596 Total - dead: 8,553; missing: 12,571; affected: 2,937,078
5. WFP played a critical role during the first days after Hurricane Mitch cut through Central America. Food from operational WFP development project stocks was immediately provided to over half a million persons in the four countries. Using their delegated authority the WFP Country Directors approved IRA/EMOPs for $200,000 in each of Honduras, Nicaragua and Guatemala. Furthermore, budget revisions for additional commodities under the on going Regional EMOP response to the El Nino phenomenon were immediately processed.
DAMAGES IN INFRASTRUCTURE
6. Infrastructure has been severely affected in all of the beneficiary countries, but more seriously in Honduras and Nicaragua. Basic social infrastructure suffered serious damage in those countries: highways, bridges, electrical generation and transmission plants, water and sewage systems, communication systems, housing, storage facilities, schools, etc.
7. In Honduras, reports are that up to 60% of all infrastructure has been destroyed or severely damaged. At least 76 bridges have been destroyed, including one that supported a fuel pipeline, which has led to gasoline rationing in the capital city and the central region. At least 100,000 houses have been destroyed. The water distribution systems in most cities have been damaged. Major damages have taken place in the electrical transmission system. The San Pedro International airport continues to be affected and is not yet fully operational. The main hospitals have been destroyed or are out of service. Economic losses are expected to amount to more than $2 billion and GNP will likely fall by at least 8%.
8. In Nicaragua, 2,500 kms of highways and roads and 174 bridges have been damaged or destroyed. In addition 24,500 houses and 150 schools have suffered the same fate. The Nicaraguan Government indicates that total losses in infrastructure and production are about US$1 billion.
DAMAGES IN AGRICULTURE
9. Specific assessments in the region are still under way with participation of OCHA, FAO, WFP and UNDP among others. The impact on the agricultural production and infrastructure does not have any precedent. It has been far more devastating than any other natural disaster. Food production has been badly hit, as well as export crops.
Honduras. Estimates are that 70% of its agricultural production was destroyed, amounting to about US$ 800 million. According to FAO, 20% of the expected coffee production was lost, as well as large amounts of bean crops, bananas, oil palms and citrus. Other fruit crops have also been seriously affected. In particular the production and export of bananas, a main hard currency earner for Honduras has totally disappeared. This has serious consequences for the financial position of the country and brings about the sudden loss of jobs of over 18,000 workers.
Nicaragua. Initial estimates indicate that at least US$ 52 million was lost among small farmers alone. FAO's estimates are that 50% of total agricultural production was lost. Food crops were the most affected: maize (20% of total annual production), beans (50%), and rice. Other crops were affected also, such as: soybeans, sesame seeds, peanuts, sorghum (80%), coffee (30%), banana, sugar cane, tobacco. Livestock also suffered major losses and the fishing industry estimates losses of at least US$18 million.
El Salvador. Basic grains, sugar cane, cotton and other crops have suffered considerable damage. It is estimated that 30% of coffee production - the main export source - was lost. About 80% of the maize crop was lost according to FAO.
Guatemala. Estimates are that 80% of the present crop of subsistence farmers has been lost, and the large banana, coffee and sugar plantations were considerably affected, reducing work opportunities for thousands of persons.
II. Government Policy/Actions
10. A National State of Emergency was declared by both the Honduran and Salvadoran Governments. Guatemala declared a State of National Calamity and Nicaragua declared a State of Natural Disaster in its more affected areas. Due to the precarious security situation in Honduras a curfew was imposed from 20:00 to 06:00 hours and UNDP has declared Phase III of the Security Plan.
11. All four governments have appealed to the international community for immediate aid, as well as rehabilitation and reconstruction assistance. WFP has been requested to provide urgent food assistance.
12. In Honduras the National Commission for Contingencies (COPECO) is in charge of this emergency operation through the Regional Emergency Commissions (CODER); Nicaragua has established a National Emergency Committee chaired by the Vice-President and integrated by cabinet members and civil society representatives; in Guatemala CONRED (Coordinadora Nacional para la Rehabilitacion de Desastres) is leading emergency operations; and in El Salvador the National Emergency Committee leads operations.
13. The first priority in each country has been to rescue victims and to provide survivors with relief assistance. This has proven to be a daunting challenge, going far beyond all the combined capacities in each country. A second and equally urgent priority has been to re-establish basic infrastructure needed to reach the more affected areas in each country and provide emergency shelter, food, water and medicines to affected populations.
14. The Governments of Honduras, Nicaragua and Guatemala have contacted the International Financial Institutions in order to reach arrangements on their immediate debt service obligations and re-programme available resources toward more priority areas.
III. Objectives of WFP Assistance
15. The objective of this EMOP is to provide emergency food aid to the most affected population. Families that are located in rural areas have lost their crops and do not have the means to receive food until the next harvest six to eight months from now. Many wage earners are now unemployed as a consequence of the severe impact caused by Hurricane Mitch in large plantations and farms, as well as in the economic infrastructure in urban areas. These households do not have other options in terms of employment or income generating activities.
IV. Beneficiaries
16. This EMOP will provide food rations during six months to 1,125,000 persons who are in need of emergency food aid in Honduras, Nicaragua, El Salvador and Guatemala. Of these, it is estimated that about 60% are children less than six years old and women. The WFP target number of beneficiaries takes into consideration the scope and areas of operation of bilateral programmes. WFP beneficiaries are located in urban and rural areas, many of them in communities difficult to reach.
17. The poor and vulnerable are the most affected. Most of them already lived in extreme poverty conditions with annual incomes under US$ 400. In the rural areas, beneficiaries will be families who lost their crops and in many cases their homes and all or most of their belongings. In urban areas, they will be people who have lost their homes, belongings and employment opportunity. Large numbers of people are now unemployed as a consequence of Hurricane Mitch and do not have any other income option, therefore they are unable to purchase food with their own resources.
18. Without emergency assistance these people are at extreme nutritional risk. In about one fourth of these households, women are heads of their families and with children at nutritional risk under normal conditions.
WFP BENEFICIARIES
Honduras: 600,000; Nicaragua: 400,000; Guatemala: 65,000; El Salvador: 60,000; Total: 1,125,000.
V. Mode of Implementation
19. Assessments have been conducted by WFP Country Offices, as well as by other UN System agencies and OCHA to determine the magnitude of this natural disaster in each country in co-ordination with Government authorities. Each WFP Country Office, with backstopping from the Regional Bureau in Managua, has maintained a continuous line of communication with Government counterparts and national emergency committees, the donor community and UN agencies as well as with civil society representatives. Project personnel located in the field have played a key role in assessment duties and in initial WFP response. In the cases of Honduras, Nicaragua and El Salvador, there were operational development projects in some of the worst hit areas, facilitating WFP's immediate response. WFP has been able to divert food stocks for these projects for immediate emergency use, rather than having to wait for shipments from abroad.
20. The emergency operation will cover the period from 15 November 1998 to 15 May 1999. Furthermore, it is planned to submit a Protracted Relief and Rehabilitation Operation to WFP's Executive Board at its next regular session in January 1999. In most parts of Central America, the "Apante" or end of the year cropping season will probably be seriously compromised, and this EMOP will tide over farmers and their families until the next season's crop can be planted or until employment in plantations and other activities can be re-established.
21. Although this EMOP is being presented as a Regional operation, the specific modalities of implementation are being designed and planned separately for each country. Nevertheless, it is expected that the joint approach will enable WFP to achieve improved effectiveness particularly in aspects of consolidated shipments, procurement and regional logistics.
Honduras. The Government counterparts will be the Technical Secretariat for International Cooperation (SETCO) and the National Commission for Contingencies, COPECO. These institutions will in turn co-ordinate food distribution with other Government agencies, the Honduran Red Cross and NGOs.
Nicaragua. The main counterparts will be the Social Action Secretariat and the Ministry of the Family. Operational aspects will be handled by the implementing unit of the WFP development project NIC 4571, that will co-ordinate with Municipalities, local Emergency Committees and NGOs that have permanent presence in the distribution areas.
Guatemala. The main Government counterparts will be the ministry of Agriculture, MAGA, the Agricultural Marketing Board, INDECA and the Social Investment Fund, FIS. They will co-ordinate with MAGA's regional offices, which will work with civil society organisations (farmer associations, Municipalities, the Catholic Church and NGOs).
El Salvador. The main Government counterpart will be the Secretariat of the Family. This Ministry will co-ordinate with other Government entities.
VI. Non Food Items
22. Taking into account the magnitude of the damages caused by the Hurricane and this EMOP's logistical implications, the necessary transport and communication equipment will be included for monitoring and reporting on food distribution. A small amount of other essential NFIs is being included, in order to provide basic implements for food preparation, clearance of debris and related activities. Among these items are fuel-efficient stoves, and pots and pans for use in shelters.
VII. Food Strategy
23. This EMOP will be implemented immediately utilising borrowed commodities from operational development projects, however replenishment of stocks is urgent since existing inventories are being rapidly depleted. As of November 7, Honduras and Nicaragua have commodities for about three weeks. Three smaller scale IRA (Immediate Response Account) EMOPs (Honduras, Nicaragua, Guatemala) were approved as an immediate initial response to this emergency and shipments destined to other countries are being immediately diverted to Central America.
24. This EMOP represents a major logistical challenge taking into account that the monthly volumes to be mobilised are four to five times the amount of commodities that are distributed normally in these countries. The WFP Regional Logistics Officer will make an immediate logistics assessment and will finalise arrangements in each country. Logistics Officers will be placed in Honduras and Nicaragua to assist implementation of this Emergency Operation.
25. Each Country Office with backstopping from the Regional Bureau in Managua will manage the logistics for this operation. Taking into account (a) the size of the operation, (b) the level of urgency, (c) present WFP operational capacity in Central America and (d) damage to infrastructure, WFP's logistical capacity needs to be strengthened with additional experienced personnel.
26. Commodities will be delivered to Puerto Cortes or San Lorenzo in Honduras; Corinto in Nicaragua; Acajutla in El Salvador; and Santo Tomas in Guatemala. These ports have the capacity for reception and handling of commodities and have now regained operational status.
27. In certain situations - due to fallen bridges and highways - food will be delivered by helicopter to secondary distribution locations. This will continue until highways and bridges are functional to all distribution areas.
VIII. Performance Monitoring
28. WFP will monitor all stages, from the initial ship unloading to the final delivery of commodities to beneficiaries. Each Country Office will prepare a specific monitoring plan that will include Government and NGO responsibilities. Government counterparts will present a monthly report on activities.
29. Reports will include: Number of beneficiaries by province/municipality, gender composition and age; Nutritional status of beneficiaries by age and gender; Available stocks; Use of non-food items; Employment status; Activities undertaken
30. Each Country Office will deploy its project staff and will contract additional monitors that will assist WFP in these activities. Sub-Offices will be established where needed, in order to be closer to beneficiaries and facilitate monitoring activities
31. Arrangements with Civil Society organisations, namely NGOs will be considered by each Country Office, in order to participate in monitoring and/or as co-executing partners.
32. At the end of this EMOP, each Government will present a final report and an external auditor will be engaged in auditing the accounts on all aspects of the Operation. The estimated cost of this audit is US$ 130,000 and has been included in the Direct Support Costs Requirements.
IX. Nutritional Considerations and Food basket
33. A common food basket that will provide beneficiaries with a full emergency ration of 2100 kcal is contemplated for all four countries.
34. Based on local dietary patterns, the following individual food basket will be distributed during the six-month EMOP: Cereals (Rice/Maize) 475 gr.; Pulses or Canned Fish 60 gr; Vegetable oil 30 gr; Total 565 gr
35. Canned fish has been included in the daily ration because of its nutritional content and advantages in being ready to eat. The commodities high-protein biscuits, CSB and DSM are added for similar reasons and will be used for special needs particularly for feeding children.
X. Budget
36. The net food requirements for this emergency operation covering six months are 116,238 MT representing a food cost to the Programme of US$ 31,157,500. The total cost to WFP of this emergency operation is US$ 58,389,930 as per the budget in Annex I. [not included with this message]
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