VZCZCXRO9005
PP RUEHBZ
DE RUCNDT #1149/01 3451451
ZNR UUUUU ZZH
P 111451Z DEC 07
FM USMISSION USUN NEW YORK
TO RUEHC/SECSTATE WASHDC PRIORITY 3303
INFO RUEHGG/UN SECURITY COUNCIL COLLECTIVE PRIORITY
RUEHDS/AMEMBASSY ADDIS ABABA PRIORITY 1526
RUEHKH/AMEMBASSY KHARTOUM PRIORITY 0993
RUEHNR/AMEMBASSY NAIROBI PRIORITY 0665
RUEHGV/USMISSION GENEVA PRIORITY 2966
RUEHRO/USMISSION UN ROME PRIORITY
RHEHNSC/NSC WASHDC PRIORITY

UNCLAS SECTION 01 OF 03 USUN NEW YORK 001149 
 
SIPDIS 
 
SIPDIS 
 
STATE FOR IO, PRM AND AF; USAID FOR DCHA; NSC FOR PMARCHAM; 
GENEVA FOR NKYLOH; ROME FOR HSPANOS 
 
E.O. 12958: N/A 
TAGS: PHUM PREF UNSC SO SU ET
SUBJECT: UNSC: U/SYG ON THE HUMANITARIAN SITUATION IN 
SUDAN, SOMALIA AND ETHIOPIA 
 
------- 
Summary 
------- 
 
¶1.  (U) On December 6 John Holmes, UN Under Secretary General 
for Humanitarian Affairs and Emergency Relief Coordinator, 
briefed an open session of the Security Council following his 
recent mission to Ethiopia, Sudan, and Somalia (as well as 
Nairobi, Kenya to meet with donors and UN staff working on 
Somalia). Holmes stopped short of calling the humanitarian 
situation in Ogaden a "catastrophe" and he welcomed the 
recent expansion of UN presence in the Somali region of 
Ethiopia, but he admitted that conditions could be worse in 
areas that had yet to be assessed.  Holmes described a 
"gradually deteriorating" humanitarian situation in Darfur, 
recalling Government of Sudan (GOS) commitments to facilitate 
the ongoing relief work and stressing that conditions are not 
yet appropriate for large-scale returns.  Holmes called on 
the international community not to forget Somalia, but he did 
not provide any concrete recommendations to address the 
security conditions that limit access to the populations in 
need.  Security Council members expressed wide support for 
monitoring these three situations as well as the need for 
political reconciliation to address the root causes behind 
each humanitarian crisis. 
 
--------------------------------------------- ---------- 
Ethiopia:  "Disaster could unfold at frightening speed" 
--------------------------------------------- ---------- 
 
¶2.  (U) In his first official visit to Ethiopia, Holmes 
attempted to follow up on the findings of the September 2007 
UN assessment mission that raised concern about a 
humanitarian crisis unfolding in the Ogaden section of the 
Somali region due to the closure of commercial trade routes 
and restrictions by the Government of Ethiopia (GOE) on 
humanitarian access, including for food aid deliveries.  In 
Addis Ababa Holmes met with government officials (including 
Prime Minister Meles Zenawi), representatives of the United 
Nations Mission in Ethiopia and Eritrea (UNMEE), and the 
African Union.  He also visited Jijiga, the regional capital, 
and Kebredhar (where he saw a food distribution that he noted 
"might have been staged" for his visit.) 
 
¶3.  (U) Holmes characterized the situation in Ogaden as not 
currently a "catastrophe," but he stressed that "a 
catastrophe could occur in the next few months if all the 
necessary action to avert it is not taken."  (Holmes also 
noted that no one from the UN has been allowed to visit many 
of the remote rural areas where the conflict has been worst, 
admitting that the situation could be more serious in those 
areas.)  Holmes reported that the GOE disagrees with the 
findings of the UN assessment and generally feels that 
current claims of humanitarian need are exaggerated.  He and 
the GOE "agreed to disagree" on the analysis of the crisis, 
but Holmes stated that he did receive some positive signals 
and a commitment that the GOE will take all necessary steps 
to avoid a famine in the region.  Holmes reported that the UN 
has been allowed to open offices in two locations in the 
region, and he called on the Security Council to monitor the 
situation and encourage political progress. 
 
---------------------------------------- 
Sudan:  Needs in Darfur continue to grow 
---------------------------------------- 
 
¶4.  (U) Following four days in Sudan with a focus on the 
continuing humanitarian crisis in Darfur, Holmes stated that 
he believes the situation is "gradually deteriorating" and 
that the international relief operation remains extremely 
fragile.  He expressed strong concern about continuing 
restrictions on humanitarian access as well as violence 
affecting civilians and aid workers, and he called for all 
parties to respect humanitarian principles that facilitate 
and safeguard the delivery of aid. 
 
¶5.  (U) Holmes reported that in meetings with the GOS he 
stressed the importance of strengthening trust and confidence 
between the government and the humanitarian community, 
including through full implementation of the Joint Communiqu 
that provides a framework for international access to Darfur. 
 Holmes noted some progress as a result of the Joint 
 
USUN NEW Y 00001149  002 OF 003 
 
 
Communiqu, but he cited a number of specific bureaucratic 
obstacles still remaining such as entry visas, exit visas for 
NGO workers and customs clearance for equipment.  Holmes 
reported receiving assurances from the Government of Sudan 
that the "moratorium on restrictions" would be extended to 
facilitate the work of international NGOs.  (Note:  This 
agreement has not yet been officially extended.) 
 
¶6.  (U) Holmes reported that in his meetings GOS officials 
repeatedly suggested that some humanitarian staff in Darfur 
were engaged in activities that go beyond a humanitarian 
mandate.  He countered that "monitoring and speaking up for 
the rights of civilians and respect for humanitarian law and 
principles are fundamental to humanitarian action."  He 
appealed to the GOS to use the High Level Committee to 
address such concerns and not to resort to unilateral action 
such as the recent expulsion of the senior UN official from 
South Darfur. 
 
¶7.  (U) On the return of IDPs, Holmes noted that while some 
limited voluntary return has occurred with the support of the 
international community in South Darfur, large-scale returns 
can only take place when conditions are safe.  He stressed 
that returns must be "free of pressure or coercion" and that 
conditions for large-scale returns in Darfur do not yet 
exist.  He also, however, reaffirmed the UN's commitment to 
work with the GOS when the conditions are appropriate. 
 
¶8.  (U) Holmes noted that humanitarian needs continue to grow 
in Darfur and that the 2008 Work Plan for Sudan will appeal 
for $825 million.  He described the humanitarian operation in 
Darfur as "increasingly fragile," and morale among aid 
workers as lower than his last visit in March.  Holmes 
reiterated that the political and military context in Darfur 
is continually shifting and he stressed that an inclusive 
peace agreement reinforced by a peace-keeping force capable 
of protecting civilians is urgently needed.  While the focus 
of his recent trip to Sudan was Darfur, Holmes also 
emphasized the fundamental importance of the North-South 
relationship. 
 
--------------------------------------------- -------------- 
Somalia:  "Single largest IDP gathering in the world today" 
--------------------------------------------- -------------- 
 
¶9.  (U) Holmes' one-day trip to Somalia allowed him to visit 
a 15-kilometer stretch of road between Mogadishu and Afgooye 
where up to 230,000 displaced people have recently sought 
refuge from violence in the capital.  Holmes characterized 
the situation as the single largest IDP gathering in the 
world.  Despite huge challenges in security and access, 
Holmes reported that some relief efforts now reach these 
makeshift communities.  Holmes noted, however, that virtually 
all humanitarian activities are implemented through local 
partners or national staff due to ongoing security concerns, 
including extortion and violence at check-points and 
roadblocks. 
 
¶10.  (U) In Baidoa Holmes met with the newly appointed Prime 
Minister of the Somali Transitional Federal Government (TFG), 
Nur Hassan Hussein.  Holmes reported that they discussed the 
humanitarian situation, the need for better protection of 
civilians, particularly in Mogadishu, and ways to overcome 
the mistrust between the TFG and the international 
humanitarian community.  According to Holmes the Prime 
Minister cited humanitarian relief, security, and political 
reconciliation as his top three priorities.  Without 
providing specific recommendations for action, Holmes called 
on the international community not to abandon Somalia. 
 
--------------------------------------------- - 
UNSC members express concern but few new ideas 
--------------------------------------------- - 
 
¶11.  (U) All members expressed continuing concern about the 
humanitarian situation in Darfur, and nearly all noted the 
need for a comprehensive political solution to address the 
humanitarian crisis.  Many noted the role of the Security 
Council in monitoring and supporting the political process, 
while South Africa, the U.S. and the UK called specifically 
for the accelerated deployment of UNAMID.  Many expressed 
concern over pressure on some displaced groups in Darfur to 
 
USUN NEW Y 00001149  003 OF 003 
 
 
return home, and Indonesia stressed that all returns must be 
safe and voluntary.  The U.S., the UK and Belgium 
specifically challenged the recent expulsion of the senior UN 
officer from South Darfur, and many members called for 
increased commitment by the GOS to lift bureaucratic and 
operational restrictions. 
 
¶12.  (U) Italy called Somalia "a test case for the 
credibility of the UN."  The U.S. reiterated the need for 
peacekeeping contingency planning by the UN for Somalia, 
which was supported by Italy, and many noted the need for a 
strengthened the African Union Mission in Somalia (AMISOM). 
France noted the recent role of its navy is protecting World 
Food Program deliveries to Somali ports, citing initial 
success in avoiding further incidents of piracy. 
 
¶13.  (U) On Ethiopia, the UK welcomed the idea of a 
high-level forum on Ogaden, to be convened by the UN Resident 
Coordinator (RC), and urged the RC to fix a date as soon as 
possible.  The UK also expressed support for monthly meetings 
between the GOE and NGOs in Addis Ababa. 
 
¶14.  (U) The complete U.S. statement, delivered by the 
Political Minister Counselor, can be found on the USUN web 
site: www.un.int/usa. 
Khalilzad