VZCZCXRO9652
PP RUEHLH RUEHPW
DE RUEHIL #2675/01 3090832
ZNR UUUUU ZZH
P 050832Z NOV 09
FM AMEMBASSY ISLAMABAD
TO RUEHC/SECSTATE WASHDC PRIORITY 5822
RUEHBUL/AMEMBASSY KABUL PRIORITY 1079
RUEHKT/AMEMBASSY KATHMANDU PRIORITY 9362
RUEHBK/AMEMBASSY BANGKOK PRIORITY 8343
RUEHKP/AMCONSUL KARACHI PRIORITY 2463
RUEHLH/AMCONSUL LAHORE PRIORITY 8062
RUEHPW/AMCONSUL PESHAWAR PRIORITY 7109
RUEHGV/USMISSION GENEVA PRIORITY 4152
RUCNDT/USMISSION USUN NEW YORK PRIORITY 0290
INFO RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RUEKJCS/SECDEF WASHINGTON DC
RUEKJCS/JOINT STAFF WASHINGTON DC
RHHMUNA/USCINCPAC HONOLULU HI
RHMFIUU/CDR USPACOM HONOLULU HI
RUMICEA/USCENTCOM INTEL CEN MACDILL AFB FL
RHEHNSC/NSC WASHDC

UNCLAS SECTION 01 OF 04 ISLAMABAD 002675 
 
AIDAC 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: EAID ECON PGOV PK PINR PREL PTER PREF IO
 
SUBJECT: Visit to Waziristan IDP Relief Center 
 
¶1. (U) Summary.  Following reports of rioting at multiple relief 
distribution points in Dera Ismail (D.I.) Khan, representatives of 
USAID, the U.N., a local relief organization, and the media traveled 
with Lt. General Nadeem Ahmed on October 28 to the newly established 
centralized relief distribution center at Ratha Kulachi Stadium in 
D.I. Khan District.  While the reorganization of distribution 
resulted in significant beneficiary backlogs and transportation 
issues, General Nadeem's interventions have already led to improved 
delivery of humanitarian assistance to displaced families in D.I. 
Khan.  End summary. 
 
---------- 
Background 
---------- 
 
¶2. (U) As of November 3, local non-governmental organization (NGO) 
FIDA, a U.S. Government-funded implementing partner, had registered 
approximately 319,000 internally displaced persons (IDPs) from South 
Waziristan, Federally Administered Tribal Areas (FATA).  To date, 
only 162,800 people have been verified by the Government of 
Pakistan's (GoP) National Database and Registration Authority 
(NADRA); however, the IDP verification process is ongoing.  Local 
authorities estimate that initial registration lists may contain 
more than 20 percent ineligible or duplicate entries.  Therefore, 
the GoP Special Support Group (SSG) expects verification to yield an 
estimated 250,000 eligible IDPs, more than 80 percent of which 
reside with host families in D.I. Khan District. 
 
¶3. (U) On October 24 and 25, local media in Pakistan reported that 
IDPs from South Waziristan rioted at several relief distribution 
points in D.I. Khan District in North-West Frontier Province (NWFP) 
due to confusion over, or non-receipt of, U.N. World Food Program 
(WFP) food rations. 
 
¶4. (U) According to the U.N., recent IDP unrest at distribution 
points resulted from misunderstanding the relief distribution 
process and site locations.  Until mid-October, South Waziristan 
IDPs registered at one of five locations in D.I. Khan District, 
where FIDA immediately provided families a non-food item (NFI) kit. 
Following initial registration and receipt of NFIs, IDPs were 
required to travel to a separate location for U.N. World Food 
Program (WFP) rations.  According to the U.N., IDPs at several 
registration points became disruptive in late October after 
suspecting that they were shorted the monthly food ration. 
 
-------------------------------------------- 
Field Visit to D.I. Khan Distribution Center 
-------------------------------------------- 
 
¶5. (U) To follow up on reported IDP rioting, the Ambassador 
requested that a representative from USAID's Office of U.S. Foreign 
Disaster Assistance (USAID/OFDA) travel to D.I. Khan District.  On 
October 28, Lt. General Nadeem Ahmed, head of the SSG, escorted the 
USAID/OFDA Principle Regional Advisor for South Asia, the newly 
arrived Country Representative of the Office of the U.N. High 
Commissioner for Refugees (UNHCR), the Pakistan Red Crescent 
Society, and CNN to Ratha Kaluchi Stadium - the new central relief 
distribution center for IDPs from in D.I. Khan. 
 
¶6. (U) During the visit, General Nadeem explained that the SSG 
addressed IDP concerns by co-locating food and NFI distribution. 
However, he clarified that IDPs must continue to pass through one of 
five initial registration points, noting that FIDA registration 
forms authorize NFI/food collection at the stadium. 
 
¶7. (U) At the stadium, FIDA distributes UNHCR NFI kits, which 
include sleeping mats, blankets, buckets, and soap.  Local NGO PEACE 
distributes the WFP family food ration, which includes wheat flour, 
oil, sugar, salt, tea, and USAID-branded pulses and high-energy 
biscuits.  During the visit, the GoP had also begun distribution of 
10,000 Frontier Corps-provided tents. 
 
---------------------------------------- 
Verification and GoP-Provided Cash Cards 
 
ISLAMABAD 00002675  002 OF 004 
 
 
---------------------------------------- 
 
¶8. (U) Following collection of relief items at Kulachi Stadium, 
families present the registration form and national identification 
cards to FIDA, who forwards this information to the Ministry of 
Social Welfare (MSW) for review.  One week later, the registration 
information is sent to NADRA for verification and determination of 
eligibility for the GoP-issued electronic cash cards and subsequent 
monthly stipend of 5,000 Pakistani Rupees (PKR), or approximately 
USD 60.  Note: See paragraph 27. 
 
¶9. (U) The SSG suspects that a portion of the individuals 
registering with FIDA may be part of normal seasonal migration from 
Waziristan to D.I. Khan District.  These individuals will be 
disqualified through the NADRA verification process and will not 
receive the GoP-provided cash card. 
 
¶10. (U) The SSG believes that cash cards will mitigate access and 
distribution issues in D.I. Khan, and support local markets. 
Beginning in November, General Nadeem indicated that families 
holding cash cards will receive monthly payments of 5,000 PKR, 
approximately USD 60, in place of the monthly WFP food rations 
valued at 3,500 PKR, approximately USD 43.  Card distribution has 
already begun with the old caseload of Waziristan IDPs - the 80,500 
individuals displaced from South Waziristan before September.  As of 
November 3, the GoP had issued 7,518 family cash cards, of which 
6,491 had been activated.  Note: approximately 33 percent of current 
NADRA-verified families have received cash cards to date. 
 
¶11. (SBU) The SSG indicated that cash card distribution may be 
complicated by inability to use point-of-sale (PoS) machines at the 
stadium to allow IDPs to immediately withdraw the 5,000 PKR in cash. 
 The SSG previously used a wireless PoS system in D.I. Khan; 
however, General Nadeem indicated that the wireless network is not 
currently functional due to the ongoing conflict in Waziristan.  To 
reconnect the machines, the SSG is working to establish landline 
telephone service at the stadium. 
 
------------------------------------- 
Registration and Distribution Backlog 
------------------------------------- 
 
¶12. (U) During the stadium visit, the SSG, FIDA, PEACE, and the GoP 
military held a troubleshooting meeting to discuss recurrent 
registration and distribution problems.  The SSG reported that lack 
of registration forms delayed registration in mid-October.  To 
address the issue, SSG/FIDA contracted a local printing company to 
produce the form. 
 
¶13. (U) The USAID/OFDA Principle Regional Advisor found that, 
although the center was well organized and addressed IDP discontent, 
the new system created a significant bottleneck during the first 
week of implementation, resulting in long lines of 7,000 to 8,000 
people outside the stadium.  On October 28, the majority of IDPs 
waited to pass through two security checkpoints and had not yet 
entered the stadium. However, the SSG provided water and shade 
points intermittently along lines.  Note: See paragraph 26. 
 
¶14. (U) On October 28, local officials estimated that the one-window 
system currently accommodates between 1,000 and 1,500 families per 
day.  However, General Nadeem believes that the stadium has the 
capacity to process closer to 3,000 families per day.  He noted that 
the reorganization of distribution had created a beneficiary 
backlog, which would be cleared in 10 to 12 days - on or before 
November 8. 
 
------------------------------------------ 
Checkpoints, IDP Transport, and Monitoring 
------------------------------------------ 
 
¶15. (U) General Nadeem explained that the military had established 
exit routes and checkpoints from South Waziristan - located at 
Gurdawai, near Tank District; Khajuri, near Bannu District; and Toi 
Khula (recently added), near Zhob District, Baluchistan Province. 
 
ISLAMABAD 00002675  003 OF 004 
 
 
 
¶16. (U) Beginning the week of October 26, the Provincial Disaster 
Management Authority (PDMA) began providing transportation 
assistance, funded in part by UNHCR, for IDP transport from military 
checkpoints in South Waziristan to FIDA registration points in D.I. 
Khan District.  (Displaced families have complained that available 
transport from conflict areas to D.I. Khan has been cost prohibitive 
for some.) 
 
¶17.  (SBU) UNHCR has engaged FIDA to provide immediate assistance to 
IDPs at military checkpoints.  In addition, UNHCR is in the process 
of training approximately ten national NGO staff in protection 
monitoring (to facilitate identification of vulnerable individuals). 
 While it remains impossible to determine the extent to which some 
people may be trapped by insecurity inside Waziristan, UNHCR plans 
to post at least one trained monitor at each of the three identified 
exit points, not only to identify the needs of those exiting, but 
also to ascertain humanitarian conditions within Waziristan. 
 
---------------- 
Schools for IDPs 
---------------- 
 
¶18. (U) According to the SSG, nine schools in D.I. Khan District 
have been identified as schools that will receive Waziristan IDP 
students.  Each of the schools has agreed to a split schedule, with 
students and teachers from D.I. Khan using the school during the 
morning and IDP students and teachers from Waziristan using the 
school in the afternoon. 
 
------------- 
Tank District 
------------- 
 
¶19. (U) According to the SSG, less than 20 percent of Waziristan 
IDPs relocated to Tank District.  In Tank, the SSG has opted to 
maintain separate registration and distribution systems, due to 
limited local capacity to provide services simultaneously. 
Therefore, FIDA will conduct registration first, followed by 
distribution of relief and food items. 
 
-------- 
Concerns 
-------- 
 
¶20. (SBU) The SSG and GoP military indicated that efforts to include 
tribal elders in the distribution process have yielded both positive 
and negative results.  The USAID/OFDA PRA noted that, during the 
October 28 visit, Mehsud tribal elders objected to IDP women 
collecting relief items, demanding that women send a male family 
member to collect relief items on their behalf.  In a November 3 
telephone conversation with USAID/OFDA, the SSG reported that women 
continue to collect relief items at the stadium, despite tribal 
elder objections. Note: See paragraph 26. 
 
¶21. (U) At a November 4 donor coordination meeting, U.N. agencies 
expressed concern that the one-window distribution system solved as 
well as created problems.  The majority of IDPs in D.I. Khan are 
concentrated in six rural tehsils (district sub-divisions), thus 
face challenges due to the cost and time required to travel to/from 
the stadium. 
 
¶22. (U) In addition, following receipt of the NFI kit and food 
ration, IDPs must find a way to transport heavy and bulky supplies 
from the stadium to host family locations.  According to the SSG, 
families often pool money together to collectively provide the 200 
to 300 PRK needed to rent transportation. 
 
¶23. (U) General Nadeem indicated that the earliest IDP families 
would return to South Waziristan is March, 2010, due to the onset of 
winter.  Therefore, the majority of IDP families will remain with 
host families for more than five months - nearly double the time 
IDPs from Malakand Division spent in host communities.  However, 
General Nadeem indicated that the hosting arrangements are distinct 
 
ISLAMABAD 00002675  004 OF 004 
 
 
in D.I. Khan.  Many Waziristan IDPs had second homes in the area, 
allowing them to move into the vacant houses, while also hosting 
friends and relatives from Waziristan.  Note: See paragraph 29. 
 
--------------------------------------------- --- 
Additional UNHCR Take-Aways from D.I. Khan Visit 
--------------------------------------------- --- 
 
¶24.  (SBU) Newly arrived UNHCR Country Representative Kebede told 
Refcoord that while he was unable genuinely to assess the situation 
on the ground in D.I. Khan due to the managed nature of the visit, 
military and CNN presence, the newly established procedures, and the 
necessary security restrictions preventing movement outside the 
stadium, he was pleased with the agreements he was able to reach 
with Lt. General Nadeem.  The GoP will permit national NGO and U.N. 
staff to travel into D.I. Khan for assistance implementation and to 
undertake the proposed UN multi-cluster assessment.  UNHCR will also 
facilitate a shelter program, including winterized tents (heretofore 
non-existent).  UNHCR plans to provide 30,000 tents for general 
distribution by a local NGO. 
 
¶25.   (SBU)  UNHCR will continue to expedite NFI kit distribution by 
sending the supplies directly from the primary U.N. warehouse in 
Nowshera to D.I. Khan warehouse for distribution, while using the 
U.N. logistics base in Bhakkar, Punjab Province, only as a back-up. 
The D.I. Khan warehouse has an 8,000 NFI kit capacity, and Bhakkar 
has a 3,000 kit capacity. 
 
-------------------------------- 
Resolution of Outstanding Issues 
-------------------------------- 
 
¶26. (U) To resolve the issue of long lines at the stadium, the SSG 
has assigned Mehsud sub-tribes with alternating relief collection 
days.  In addition, the SSG plans to designate days for women, 
allowing female heads of household to collect relief items as 
needed. 
 
¶27. (U) The verification process traditionally takes three weeks; 
however, the SSG is working with MSW and NADRA to reduce processing 
time.  The SSG has asked that NADRA provide FIDA the appropriate 
database format to allow direct transfer of IDP information after 
MSW review.  General Nadeem believes this will hasten the process by 
approximately one week. 
 
¶28. (U) USAID/OFDA has followed up with General Nadeem regarding the 
issuance of additional non-objection certificates (NOCs) for NGOs 
with the experience and capacity necessary to operate in D.I. Khan 
and Tank Districts.  The SSG indicated that only three organizations 
- all local NGOs - currently have NOCs, although provincial 
government officials are reporting four, including two international 
NGOs.  General Nadeem plans to further discuss the issue and 
possibilities with the SSG and GoP military.  However, he 
anticipates that many of the distribution issues will be resolved 
through the cash card system. 
 
¶29. (U) Due to the anticipated five-month host family arrangements 
in D.I. Khan, USAID/OFDA will assess the need to provide host family 
or rental subsidies for IDP families to mitigate potential host 
family fatigue during the winter months. 
 
¶30. (SBU) While the October 28 distribution initiated a new 
procedure and was managed for media and security purposes, it is 
clear that the presence and initiative of General Nadeem has a 
significant positive impact in achieving resolution of relief 
operations issues on the ground. General Nadeem indicated to 
USAID/OFDA rep that he is planning to conduct regular site visits to 
D.I. Khan, including a visit the week of November 1, to further 
monitor the progress of distribution and registration at Ratha 
Kulachi Stadium. 
 
Patterson