VZCZCXRO2504
PP RUEHBC RUEHDA RUEHDH RUEHKUK
DE RUEHGB #0250/01 0311600
ZNR UUUUU ZZH
P 311600Z JAN 10
FM AMEMBASSY BAGHDAD
TO RUEHC/SECSTATE WASHDC PRIORITY 6380
INFO RUCNRAQ/IRAQ COLLECTIVE
RUEHGV/USMISSION GENEVA 0006
RHEHNSC/NSC WASHDC

UNCLAS SECTION 01 OF 03 BAGHDAD 000250 
 
SENSITIVE 
SIPDIS 
 
DEPT FOR NSC SAMANTHA POWER 
DEPT FOR USAID 
 
E.O. 12958: N/A 
TAGS: PREF PGOV PHUM PREL IZ
SUBJECT: DIYALA VISIT HIGHLIGHTS PROGRESS OF IDP RETURNS INITIATIVE 
 
¶1. (SBU) Summary: A January 24 visit to Diyala province demonstrated 
that a GOI-led initiative to create conditions for return is 
reaching returnee populations and appears to be having a positive 
effect on populations that are considering coming back.  The 
Government of Iraq (GOI) is enthusiastic about the initiative and 
clearly eager to take credit for work funded by international 
actors, but GOI investments were lagging.  The visit provided an 
opportunity for monitoring and evaluation of work and we will seek 
to follow up to assess whether returns are sustainable and the 
shelter selection process is inclusive.  The initiative is assisting 
the return of displaced persons and can serve as a model for 
coordination, but the GOI needs to live up to its commitments to 
invest, other international organizations must contribute more and 
development actors should begin to tie in programming to support 
sustainability.  End Summary. 
 
¶2. (SBU) Sr. Refugee and IDP Coordinator traveled to Diyala province 
with a 12-person delegation, including officers from USAID's Office 
of Foreign Disaster Assistance (OFDA), the UN High Commissioner for 
Refugees (UNHCR), the World Food Program, the Food and Agriculture 
Organization, UNICEF, the International Organization for Migration, 
and the World Health Organization.  Our goals were to: 1) check on 
progress of the initiative; 2) encourage UN agency heads to support 
the initiative; and 3) spur greater engagement by local and national 
officials.  Although Diyala province is the source of just 19% of 
Iraq's displaced, it has seen 28% of all refugee and IDP returns in 
2009 - over 58,000 - second only to Baghdad. 
 
¶3. (SBU) The day began with a meeting/press conference in the 
provincial capital of Baquba with the Governor of Diyala Dr. 
Abd-al-Nasr al-Munstir Billah, the head of the Implementation and 
Follow Up Committee on National Reconciliation (IFCNR) Mohammad 
Salman, and a range of other Baghdad and Diyala officials.  On the 
way to the meeting, Salman's convoy encountered an attack with an 
improvised explosive device with no injuries, and thereafter 
traveled with heavy police reinforcements. 
 
¶4. (SBU) GOI officials expressed their commitment to the initiative, 
with Salman noting that the GOI committed 50 billion dinar ($43 
million, 1000 dinar = $0.87) to compensation for destroyed housing, 
adding that the Prime Minster had approved a proposal for another 
$100 million for reconstruction.  (Note and Comment: Salman, who is 
running for Parliament representing Diyala, may be engaging in 
election year promises.  Of 50 billion dinar for compensation that 
was approved in 2008, only 13 billion was spent, and the Treasury 
reclaimed the unspent money.  We are still waiting the GOI to 
transfer to the province an additional 37 billion dinar the GOI has 
pledged.  End note and comment.)  Salman praised the initiative, 
noting the "exceptional efforts" of the international partners and 
the "an unprecedented amount of attention and funding" the GOI is 
giving to the initiative.  "People are coming back because they know 
what is happening in Diyala," he said. "We hope our cooperation will 
continue." 
 
¶5. (SBU) Sr. RefCoord and each of the UN agencies described their 
activities in Iraq and expressed their commitment to the initiative. 
 UNHCR and IOM provided details on efforts specific to Diyala. 
(Comment: Notably, WFP, which has not implemented programs under the 
initiative, stated that although it is concerned with the return of 
Qinitiative, stated that although it is concerned with the return of 
internally displaced persons (IDPs) and refugees, it is concerned 
with all of the vulnerable.  It has, however, forwarded to RefCoord 
a proposal to assist with the initiative, saying more cannot be done 
unless more funding comes its way.  End comment.) 
 
¶6. (SBU) In two villages in Baqubah district, Saide Awad and Abu 
Sear/Khafaja, the delegation observed wide-spread destruction caused 
by sectarian and Coalition fighting of 2006 and 2007.  Amid the new, 
ochre-colored UNHCR homes were completely flattened buildings, 
massive piles of rubble, and homes with crumbling roofs where 
occupants had made makeshift repairs in order to live.  In both 
villages, residents reported that they had returned in the last few 
days because of the homes constructed by UNHCR.  Villagers that had 
returned prior to the shelter project noted that both Shi'a and 
Sunni residents were living together as they had before the 
violence.  Both villages currently have mixed populations.  Several 
families indicated that other displaced family members wanted to 
return since the initiative commenced, but that more housing, and 
better water supply were urgently needed.  (Note: Specific 
monitoring comments follow.  End Note). 
 
Returns, Rubble and Reconstruction 
- - - - - - - - - - - - - - - - - - 
 
¶7. (SBU) In Abu Sear/Khafaja, a village that is majority Shi'a, a 
farmer interviewed by Assistance RefCoord recounted his story.  In 
2006, a group of militants had arrived demanding that villagers 
 
BAGHDAD 00000250  002 OF 003 
 
 
assist them or leave the village, when villagers did not depart, the 
militants killed more than a dozen of the residents.  At that point 
the residents departed en masse, returning later, after the 
violence, to find the homes of those who did not cooperate 
completely destroyed.  Other residents noted that Coalition Forces 
had conducted air strikes against the village after they had left 
that also added to destruction.  The resident pointed to a large 
pile of brick rubble that had been his home.  He noted that only 
three of his family members had returned, because the home that 
UNHCR had built was too small to accompany all eight of his family 
members. 
 
Monitoring Comments: Beneficiary Selection Critical 
- - - - - - - - - - - - - - - - - - - - - - - - - - 
 
¶8. (SBU) Interviews with residents and other demonstrated that 
continuous monitoring of the initiative is needed.  The following 
have been raised with UNCHR as key elements of that follow up: 
 
-- IDPs are returning to the villages benefiting from shelter 
reconstruction in Diyala.  However, according to returnees, many of 
those who wish to return cannot yet because shelters were provided 
to those who had already returned.  There will need to be second and 
third rounds of construction in order to benefit everyone in need. 
Homes should also be spaced further apart, to allow families to 
build onto their homes. 
 
-- Beneficiary selection needs to be clarified and implemented more 
assiduously to target most the vulnerable.  Assistance RefCoord and 
USAID interviewed women who said that a group of seven female-headed 
households had been promised housing but had not received it.  It is 
possible that a beneficiary selection committee, composed of UNHCR's 
local representative, the local mayor (mukhtar), village leaders, 
the district council and the NGO selected by UNHCR to carry out the 
work, did not include female representatives.  It remains unclear to 
Post what criteria were used to select beneficiaries. 
 
-- Quality of construction is much improved over a previous visit to 
Diyala, with houses showing higher quality masonry and more 
professional finishing.  UNHCR will henceforth increase the size of 
the homes to 40 sq. meters (from about 25 square meters), adding a 
second room to accommodate larger families.  It has done this at a 
cost of approximately $1400, so that homes now cost $8,400. 
However, UNCHR should ensure that home design allows walls to be 
demolished to accommodate extra rooms without destabilizing the 
structure, as per the concept that owners will be able to expand 
these UNHCR "starter" homes. 
 
-- Better oversight of contractors is required to ensure 
requirements are met.  For example, UNHCR's construction 
specifications require that housing latrines be connected to leach 
fields.  These fields did not appear to exist in both locations. 
 
-- Critical needs remain to be met if returns are to be sustainable. 
 Priority needs include access to water (both drinking water and 
water for irrigation), education (especially for girls), health care 
and livelihoods.  None of the homes inspected had access to potable 
water, though they had been fitted with water tanks and piping.  The 
vast majority of residents are farmers and many irrigation systems 
need repair (Comment:  These issues are not specific to IDPs.  End 
Comment.)  IOM has interviewed more than 60 villagers with a view to 
providing grants for specific business plans.  IOM reports grants 
will be provided shortly. 
 
 
Follow On Actions: Commitment Still Needed 
QFollow On Actions: Commitment Still Needed 
- - - - - - - - - - - - - - - - - - - - - - 
 
¶9. (SBU) All told, the work being done by the initiative in Diyala 
is almost entirely by UNHCR to date, using funds the U.S. has 
provided.  Though Muhammad Salman and his Diyala Initiative 
point-man, Aqil Salman, were mobbed by welcoming residents when they 
arrived at these villages, in reality GOI commitments have lagged, 
and we have yet to get confirmation that funds committed to the 
initiative have arrived.  The GOI needs to step up their engagement 
and there are simple actions it could take, and which Post will 
suggest.  The Diyala government could direct its public works 
agencies to clear away the heavier remnants of destroyed housing, 
for example, or deploy some of those provided with IDP six-month 
contract jobs to clear the rubble.  We note that Directors General 
of line ministries in the province often are unresponsive to the 
governor, adding to implementation difficulties.  It could also use 
some of these individuals to clear and repair damaged irrigation 
canals.  Wider UN agency commitment is needed.  Comments by other 
agencies -- particularly UNICEF, which has done some water projects 
in the area, WFP, and WHO -- indicate they will henceforth be more 
engaged. 
 
BAGHDAD 00000250  003 OF 003 
 
 
 
Comment 
- - - - 
 
¶10. (SBU) Post leaves this trip encouraged by what is taking place 
in Diyala but recognizing that sustainability will require improved 
planning and a greater commitment on behalf of the GOI and the UN. 
In time this approach could serve as a model with some applicability 
elsewhere in the country.  For the time being it appears that the 
initiative is serving U.S. humanitarian, moral and strategic 
interests in Diyala by reaching vulnerable populations, assisting 
returnee populations and supporting reconciliation of Shi'a and 
Sunni groups.  To be sure, our monitoring has revealed a range of 
issues that require immediate follow up.  Other assistance by the 
GOI and other UN agencies is necessary to ensure returns are 
sustainable and that the shelter selection process includes both 
female-headed households and follow on returnees.  GOI commitment 
and capacity also remains key and, frankly, a limiting factor.  We 
aim to take these lessons to heart as we look elsewhere in Iraq to 
support safe, sustainable and voluntary returns.   End Comment. 
 
HILL