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Report of the First Mission to Lesotho, Malawi, Mozambique, Swaziland, Zimbabwe, and Zambia
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Summary Mission Findings and Recommendations
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Lesotho
The Lesotho Government has been dynamic in its efforts to identify and address the humanitarian needs of its people. However, donor response to the humanitarian needs in Lesotho has been insufficient. It was apparent that in some cases the donor community is arguing that the causes of the crisis are structural in nature and therefore require longer-term development assistance. While structured development assistance is a pre-requisite to support the Government in addressing deficiencies in the agricultural and social service sectors, the need for immediate life-saving assistance is paramount. In this respect, it was felt that the UN should endeavour to work with the Government to ensure that the short-term needs of Lesotho are highlighted, fully appreciated by the donor community and responded to. This includes attention to the consequences in the health, nutrition and education sectors.
Main Findings and Recommendations:
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Both needs and responses identified by the Government should be given higher profile through a collaborative region-wide publicity effort.
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Immediate support to expand agricultural production is viewed as a critical adjunct of the emergency response. There is a need to advocate for and support a response from the international assistance community to address the decline in crop production through initiatives that support improved and sustainable land management practices and agricultural diversity.
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The impact of the HIV/AIDS pandemic was clearly evident in terms of its compounding effect on vulnerability. While measures are being taken by the Government to broaden awareness, the mission recommends for the UN to engage in more concerted dialogue with the Government to help in their efforts to confront the stigma associated with the virus, in addition to ongoing efforts to assist those whose lives have already been devastated by its reach.
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In recognition of the complex mix of issues that require support from the international assistance community, it is recommended that robust, strategic linkages are formed between the humanitarian assistance community and key development partners to help the Government ensure coherence and consistency of support.
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Zimbabwe
Zimbabwe is clearly the most serious crisis situation in the region. After meetings with President Mugabe, Senior Government Officials, the UN country team, donors, NGOs and a cross section of groups from civil society, two principal observations emerged. Firstly, the Government expressed a commitment to work with the UN humanitarian community in order to facilitate the delivery of assistance to the most vulnerable. Secondly, humanitarian needs in the country are grave and the situation is likely to deteriorate for many Zimbabweans unless the Government takes steps to address key issues of economic policy. The most pressing concern remains the ‘food gap’ of around 450,000 metric tons (Mt) that will not be covered, even if food aid is fully resourced (current food aid contributions and pledges are only 165,000 Mt out of 452,000 Mt requested).
Main Findings:
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The Zimbabwean Government stated a commitment to supporting humanitarian interventions through accepting the distribution of milled GM-content food aid, expressing its commitment to expedite the accreditation of humanitarian NGOs, and by declaring that WFP food distributions would not be subject to political interference.
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After taking Government imports and food aid into account, it is clear that there is still a gap of around 844,000 Mt of cereals that will be needed to meet the needs of the country. Given the current system of price controls and other economic policy restrictions, it is unlikely that the private sector will be able to fill the gap. There is a strong need to support ongoing initiatives to monitor the situation regularly and to encourage the government to undertake policy reforms, such as a review of the current role of the Grain Marketing Board (GMB).
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More resources are necessary for general food distributions that include a full basket of commodities for the most vulnerable. HIV/AIDS and supplementary feeding interventions also need to be scaled up.
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The health system is suffering from chronic problems such as staffing shortages and lack of resources for essential drugs. Faced with problems such as severe malnutrition that are emerging now, the system will be unable to cope unless additional capacity and essential drugs can be mobilized.
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Agricultural inputs need to be distributed to farmers by mid- to late-October for the planting season. Seeds are available locally, but there is little cash to purchase them. Fertilizers need to be purchased or imported immediately. The UN is to focus on communal and peri-urban areas while resettlement areas are a stated priority of the Government.
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Foot and mouth disease is threatening livestock in many parts of Zimbabwe. Targeted vaccinations are necessary to slow the spread of the disease. There should also be a concomitant repairing of fences and policing of cattle movements by the Government.
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Water and sanitation initiatives should be supported in order to improve hygiene conditions and reduce the likelihood of opportunistic infections for people living with HIV/AIDS. HIV/AIDS is a longer-term problem, but it does need to be addressed in the context of the vulnerability that the current humanitarian crisis has generated.
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The current crisis in Zimbabwe affects urban centres as well as rural areas. Around one million people living in urban areas require special response and are in need of assistance.
Recommendations:
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Generally, the situation in Zimbabwe is of such magnitude that immediate action in all sectors and areas is an absolute priority.
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Grain trading practices need to be liberalized through the easing of price controls and a review of economic policies. The Government should take measures to facilitate private sector involvement in bringing food into the country. SADC could assist the Government in reviewing its policies.
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Given the particular political circumstances in Zimbabwe, renewed appeals should be made to the donor community, particularly with reference to non-food items.
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Dialogue and information sharing between the Government of Zimbabwe and the humanitarian assistance community must continue at all levels to avoid misunderstandings and to continue to build trust.
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The needs of the vulnerable must be assessed and quantified, and provided for in a consistent and equitable manner – including those who have lost their jobs on the commercial farms. Access to all must be assured.
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WFP and the GMB should explore the possibility of coordinating food distribution activities and locations, as a means of improving food availability. WFP would continue to reach the most vulnerable populations through targeted free distributions, and would advocate for the GMB to offer food for sale at the same time for those that can afford to buy it.
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Emergency school feeding programs should be considered as an intervention in areas impacted by food shortages, keeping in mind that they need to be integrated with other programs.
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It is necessary to advocate for a joint GoZ/UN contingency planning exercise to ensure effective and timely preparedness measures are put in place considering the collation of farm inputs data for the upcoming crop season and in the likelihood that the 2002/03 growing season will not see optimal utilization of the high-potential agricultural land in the aftermath of the fast-track policy.
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Zambia
The need to link humanitarian assistance efforts with those of longer-term development is apparent in Zambia, particularly with reference to the HIV/AIDS crisis, types of agricultural intervention targeted to support existing national initiatives, school feeding initiatives, and the need to improve the functioning of the health system. None of these development problems can be solved with humanitarian assistance alone, yet emergency relief assistance is desperately needed in the immediate term.
There is no change in the Zambian Government’s position on GM-content food aid. Discussions were constructive, however, and it is clear that the GoZ is still approaching the issue in a thoughtful manner and that the earlier decision to ban GM food imports is not necessarily final.
Main Findings:
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While the ban on GM food aid continues, the Government is pursuing its investigation into the issue, and has not come to a final position. At the same time, the Government was receptive to considering alternative foods such as wheat.
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It was clear that the needs in Zambia involve more than emergency food aid. However, Ministry of Health (MoH) needs in the critical health and nutrition sectors were not fully quantified. Urgent action is necessary to define the extent of health and nutritional needs and the required response to address the crisis.
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Zambia provides a stark example of how humanitarian assistance for relief of the current crisis must be carefully blended with longer-term development efforts in areas such as HIV/AIDS and agricultural development.
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The HIV/AIDS situation in the country has exacerbated the current situation to such an extent that emergency interventions are needed immediately. At the same time, however, it must be recognized that humanitarian assistance alone will not solve the longer-term problems associated with the pandemic.
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Where emergency interventions for HIV/AIDS are undertaken, more sustainable forms of programming should be considered at the same time as a means of ensuring continuity and longevity of the response. Capacity building measures for local organizations may be necessary in this regard.
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Local purchases from food producers in Northern Zambia, as long as they do not deplete that local market, may help WFP obtain appropriate food to distribute in Zambia and at the same time promote the local economy.
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While the agricultural programme originating from the Consolidated Appeal Process (CAP) is fully resourced, the need for coordination of multi-agency efforts has been identified.
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The mission recommends that support be provided to the MoH to strengthen health and nutritional surveillance as a matter of priority. This will allow for a determination of the real needs that exist in the country, and should help WHO and the MoH enter into a process of contingency planning.
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There is an urgent need for supplementary feeding for certain target groups such as lactating mothers, orphans, and people with HIV/AIDS and tuberculosis. Health clinics and schools should be considered as important entry points for supplementary feeding programmes.
Recommendations:
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Where emergency interventions for HIV/AIDS are undertaken, more sustainable forms of programming should be considered at the same time as a means of ensuring continuity and longevity of the response. Capacity building measures for local organizations may be necessary in this regard.
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The mission recommends that support be provided to the MoH to strengthen health and nutritional surveillance as a matter of priority. This will allow for a determination of the real needs that exist in the country, and should help WHO and the MoH enter into a process of contingency planning.
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There is an urgent need for supplementary feeding for certain target groups such as lactating mothers, orphans, and people with HIV/AIDS and TB. Health clinics and schools should be considered as important entry points for supplementary feeding programmes.
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Additional resources are needed for the purchase of basic supplies and drugs for epidemic-prone diseases such as measles, meningitis, cholera, skin conditions, polio, malaria, and acute respiratory infections.
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Careful monitoring of the logistics capacity should continue. Prompt action must be taken to repair transport pontoons prior to the rainy season.
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Negotiations with the GoZ should be completed quickly on the acceptability of wheat so that immediate resourcing can commence.
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Targeted emergency school feeding interventions should be initiated immediately.
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In light of the Government’s need for more information on genetically modified organisms (GMOs), the UN should develop a more definitive statement on the safety and acceptability of GM products.
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The UN should remain as neutral as possible in the discussions on GMOs in order to allow the Government of Zambia time to make an informed decision on the matter.
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Malawi
Malawi is characterized by good cooperation between the Government, the UN system, donors, and NGOs. The Government is clear on its priorities and UN agencies and NGOs collaborate well in most respects. The NGO community has created a coordination consortium that has established a good working relationship with the Government.
Overall levels of poverty and the impact of the HIV/AIDS pandemic have left the population of Malawi on the edge of crisis. These stresses mean that any negative shock, such as a moderate drought, has an immediate magnified impact. The longer-term solutions lie in development, but an immediate humanitarian response must also be maintained.
Against this background, Malawi faces a huge challenge in terms of finding the capacities necessary to cope with a number of critical needs as the crisis deepens. The health system is weak and needs to be strengthened in tandem with NGO programmes for supplementary feeding. Sound and coordinated HIV/AIDS programming is urgent. Major issues around competition for transport and haulage capacity, funds for milling of GM-content cereals, and rainy season logistical constraints continue to be a major preoccupation with the Government. Moreover, the private sector is not likely to be able to meet the food gap of 120,000 Mt not covered by food aid or planned Government imports. While an agricultural starter pack programme is being coordinated by the Government and donors, risk management through crop diversification and increased irrigation should also be addressed.
Main Findings
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The United Nations system is providing a robust response to the humanitarian needs in Malawi. Agencies have shifted gears, reinforced capacity and should be well placed to address and mitigate the worst effects of the immediate crisis, provided that donors continue to respond positively to Malawi’s Consolidated Appeal (currently 60% funded). A further positive element of the response to date is the effective partnerships forged between the Government, the UN and the NGO community.
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While the immediate food pipeline is sound, in addition to the outstanding food required by WFP, there remains concern on how the gap of 120,000Mt will be covered. The UN will continue to work closely with the Government to determine how best this shortfall can be filled.
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The Government’s decision to mill all GM maize will increase costs. The process of milling may contribute to delays in distribution and consequent congestion as available commodities compete for limited transport and logistic capacity. The recent contribution from Norway of 200 6x6 trucks for the region (between 60 to 65 for Malawi) will be critical to reaching communities in areas which become cut off during the rainy season.
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While milling of GM maize would create possible obstacles to timely distribution of food, the mission is mindful of the positive effect it will have by reducing the burden on women and the potential for better nutrition through fortification. During meetings with the Government, it was understood that grain maize would continue to be distributed until the planting season begins in each part of the country, at which time substitution for milled maize would begin. At the same time, awareness-raising campaigns would be carried out to advise people not to plant food aid grain.
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The mission supports the UN Country Team opinion that humanitarian emergency work should reinforce ongoing development activities. Similarly, efforts should be proactive in order to reduce the need for reactive emergency interventions, such as in food production.
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The Government’s intention to expand school feeding is recognized as an important strategy to address both declining nutritional status and school attendance rates. WFP and UNICEF should continue to expand school feeding programmes as far as resources allow.
Recommendations:
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Surveillance and absorptive capacity in the health system remains a key concern. Additional support for the Health Ministry is crucial for it to respond effectively to the increasing demand for life saving services. Surveillance must also be maintained so that vulnerability continues to be the main criteria for targeting assistance.
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While the food assistance programme has been stepped up and food is reaching the most vulnerable, the mission recommends strengthening efforts to raise nutrition levels through an expanded range of humanitarian responses, including agriculture, health, sanitation and education projects, and fortification.
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In the medium term the team strongly endorses Government efforts to expand irrigation and encourage farmers to diversify crops, particularly for drought resistant foods such as cassava and sweet potatoes.
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Close coordination and communication should be maintained with donors and the Government on the arrangements for the management of the Strategic Grain Reserve.
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A thorough assessment of milling capacity and types of milling operations available in-country should be carried out.
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To provide for the increasing numbers of HIV/AIDS patients, home-based care needs to be expanded. The mission recommends the provision of care and comfort kits at the community level to help provide for terminally ill patients, including targeted feeding.
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Discussions with donors highlighted concerns on the proposed universal subsidy for maize as supported by the World Bank. The mission recommends further dialogue on this issue to ensure coherence between all international assistance in our collective efforts to provide for the needs of the most vulnerable.
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Mozambique
Mozambique is playing a highly appreciated role in facilitating the transshipment of relief food and other items to countries in the region. To date, movement of goods through the ports of Maputo, Beira and Nacala has been smooth, although concerns exist as to the capacity to manage larger consignments as the relief operation intensifies.
The significant role the United Nations system can play to support Government efforts to put in place effective preparedness measures that mitigate the worst effects of disasters was highlighted during the visit. The efficacy of a robust contingency plan for Mozambique prepared at the beginning of 2002 has helped to ensure a coherent and timely effort on behalf of all partners at an early stage of the crisis. However, donor responses are needed now to ensure adequate capacity is in place to address the expected increase in humanitarian needs due to acute pockets of vulnerability seen throughout the southern part of the country. This is particularly important ahead of the rainy (cyclone) season.
The far-reaching impact of the HIV/AIDS pandemic has challenged these efforts and undoubtedly will continue to impact heavily on food security in general and the overall vulnerability of people in areas most affected by the drought as well as those with limited access to social services.
The potential for agricultural self-sufficiency in Mozambique is constrained by poor infrastructure and sub-optimal farming techniques. However, with the help from FAO and other partners, the Government is actively pursing initiatives to improve and expand the agricultural base.
Main Findings
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It is clear that the Government of Mozambique has made strong efforts to incorporate learning from the flood-related disaster response in 2000 and 2001. This has resulted in a UN-supported contingency planning process, as well as the implementation of preparedness measures.
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The mission noted clear benefits of the good coordination that exists between the Government, the UN, and the NGO community, particularly with the work that has been done by the National Disaster Management Institute.
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HIV/AIDS is clearly having a severe impact on the capacity of communities and people to cope with other environmental shocks. It is perhaps the strongest underlying factor in the crisis of Mozambique (and the region) and cannot be ignored.
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The mission appreciates the key role that Mozambique plays in facilitating logistical movements of humanitarian aid to landlocked countries in the region.
Recommendations:
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The crisis situation in Mozambique is less severe than other countries in the region. However, stakeholders in Mozambique consistently stressed the need for strengthened preparedness and prevention measures now in order to avoid a worsening of the crisis. There are drought-affected pockets of acute malnutrition that must be reached immediately with food aid and other assistance.
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While the Government’s inter-ministerial approach to HIV/AIDS is laudable, ministries must become more engaged in addressing the disease. In addition to improving prevention efforts and care capacity, anti-retroviral drug treatments for patients with adequate food intake should be seriously examined as a means of halting mother-to-child transmission and the dramatic decline in production and corresponding effects.
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Logistical constraints that are currently affecting the delivery of humanitarian aid such as third-party transport arrangements, customs clearance procedures, and humanitarian goods waivers need to be followed up closely by SADC and the UN. The Government of Mozambique should be encouraged to take a stronger leadership role in resolving some of these issues.
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Swaziland
With the second highest HIV prevalence rate in the world (now over 36%), the capacity for Swaziland to cope with the shock of several consecutive harvest failures in parts of the country has been drastically reduced.
Although it is classified as a lower middle income status country, 66% of Swazis live on less than US$10.00 per month. With the added burden of AIDS orphans and the decline in productive capacity of the workforce, the health system is struggling to cope, children are dropping out of school at alarming rates, and agricultural production is falling. Drought and crop failure in some parts of the country have created pockets of acute need.
Swaziland, like its neighbours in the region, needs assistance in the immediate term that complements longer-term development objectives. The Country Team feels strongly that the drought-related needs should not be addressed without also taking into account the impact of HIV/AIDS, which is now a dominant feature of Swazi society.
Main Findings:
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Current UN capacities in all sectors are limited and the focus of activity is narrow and localized, particularly in the sectors of health and education.
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While emergency programmes to provide food assistance have been stepped up by both Government and UN (WFP), there is little evidence to suggest that equivalent measures are being taken in the health sector.
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The increasing numbers of child-headed households need support. Targeted interventions are needed to help these households develop skills for sustainability.
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The scale of the response to the crisis in Swaziland is so far not commensurate with the needs. The perceptions of available resources and existing capacities are serving to obscure the reality of rapid social and economic reversals caused largely by the impact of HIV/AIDS. In other words, income distribution in Swaziland hides the reality of a small middle class elite and growing poverty in both rural and urban areas.
Recommendations:
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The UN system should consider broadening the strategic approach with respect to support for health and education in close collaboration with the national institutions.
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More sustained support from the Johannesburg regional coordination office and other regional capacities is necessary to help strengthen the capacity of the Country Team in Swaziland.
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The United Nations system should review the impact of middle-income status countries such as Swaziland in relation to their needs and capacities to respond during periods of crisis.
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Agricultural development is constrained by limited and declining capacity - particularly as HIV/AIDS takes its toll on extension workers. Key to the long-term food security of Swaziland is the development of a long-term agricultural strategy. In the short term, special focus is needed to provide training to children headed households on smallholder subsistence farming techniques (rabbit or poultry rearing).
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Targeted school feeding interventions should be explored as a means of improving nutritional coverage of school-age children and reducing school dropout rates.
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