US embassy cable - 05GENEVA2494

UNCLAS SECTION 01 OF 02 GENEVA 002494 
 
SIPDIS 
 
USEU FOR MEZNAR, USUN FOR MALY 
 
E.O. 12958: N/A 
TAGS: PREF, UNHCR 
SUBJECT: UNHCR: EXCOM CABLE #3: IDP OVERVIEW 
 
 
1.(U) Summary.  The invigorated UN Collaborative Approach to 
Internally Displaced Persons (IDPs) and UNHCR,s enhanced 
role in the new approach were of key interest during UNHCR,s 
Executive Committee (EXCOM) meetings the week of October 3-7. 
 A panel discussion devoted to the issue took place on 
October 3, and the proposal to designate UNHCR the "cluster 
lead" on protection, camp management and coordination, and 
emergency shelter was addressed by EXCOM special guest SYG 
Kofi Annan, UN ERC Jan Egeland, High Commissioner Guterres, 
and many EXCOM delegations.  EXCOM delegations generally 
recognized the need to better address IDP situations, and 
expressed appreciation for efforts made to bring greater 
clarity to the UN response to IDPs.  Delegations appears 
prepared for UNHCR to take on the three cluster leads, though 
many questions remain that need to be addressed as the 
process moves forward.  End Summary. 
 
2.(U) Members of the UN Interagency Agency Standing Committee 
(IASC) have been working on strengthening the UN response to 
internally displaced persons (IDPs), and have settled on an 
approach where a certain UN agency will take the lead in each 
of eight sectors where particular gaps exist.  Further 
details of the plan are being worked out in the IASC; in the 
mean time though UNHCR has begun engaging EXCOM members on 
its proposed new role.  Among other things, the plan calls 
for UNHCR to take the lead in three sectors: protection, camp 
management and coordination, and emergency shelter.  As part 
of UNHCR,s efforts to engage its Executive Committee on the 
issue, a panel discussion on the topic was held October 3. 
Panel participants included UN Emergency Relief Coordinator 
(ERC) Jan Egeland; UN High Commissioner for Refugees Antonio 
Guterres; and DRC Minister of Interior, Decentralization, and 
Security, Mr. Mbemba Fundu. 
 
3.(U) In his presentation, Egeland laid out three goals of 
the invigorated Collaborative Approach: 1) strengthening 
response capacity at the local, national and international 
level; 2) making funding more predictable; and 3) improving 
coordination.  Being a sector lead, said Egeland, means 
"coordinating with others" (not "coordinating others"), 
building local and national capacities so they can carry out 
the majority of the IDP work, assessing the level of sector 
response, providing assistance, and serving as a provider of 
"last resort".  Without offering specifics, he asserted that 
the new approach would be more cost effective. 
 
4.(U) The IASC, which meets again on December 12, will decide 
initially on two or three pilot countries.  (Note: USDel 
learned subsequently that the DRC, Liberia, and northern 
Uganda were being considered for the pilot countries.)  The 
new program and revised UN Central Emergency Response Fund 
(CERF) could then be launched on January 1.  To assist IDPs 
"we absolutely must have additional resources, otherwise it 
won,t happen", said Egeland.  His goal is to get $500 
million committed to the CERF to be used as grants and loans. 
 He indicated that the UK, Sweden, Switzerland, the 
Netherlands, and Norway have committed to support the CERF, 
and that some $170 million had already been pledged towards 
this effort. 
 
5.(U) "UNHCR is one of the key partners in the approach", 
said Egeland, and "the Red Cross has a role too."  He added 
that the entire international community has a responsibility 
to speak up regarding IDP situations, that stronger political 
support should accompany humanitarian efforts, and that 
solutions to the root causes of displacement need to be 
found.  Egeland urged those present to help ensure the 
invigorated Collaborative Approach gets off to a strong start. 
 
6.(U) UNHCR,s High Commissioner Antonio Guterres said UNHCR 
must be a predictable partner on IDPs, while acknowledging 
that being a sector lead did not mean covering all needs 
within that sector, but rather working to ensure they are met 
by some entity.  UNHCR,s increased involvement would not 
result in staff increases in headquarters, but could in the 
field.  OCHA,s PROCAP proposal could be tapped by UNHCR to 
identify short-term, mid-level protection staff. 
 
7.(U) DRC Minister Fundu said his country would serve as an 
ideal pilot.  The IASC has yet to decide on pilot countries, 
but Egeland acknowledged the DRC is a good candidate. 
Ugandan Minister Ali made a pitch to serve as a pilot as 
well.  Guterres opined that emergencies that are not working 
well should be selected as pilots. 
 
8.(U) Delegations expressed appreciation to the ERC, the 
OCHA/IDD unit, and the IASC for their efforts in bringing 
renewed energy to addressing the needs of IDPs, whom many 
acknowledged are among the most vulnerable people in the 
world.  EXCOM members generally supported UNHCR,s role as 
sector lead for protection, camp management coordination, and 
emergency shelter. 
 
9.(U) Despite general support from EXCOM members, some 
delegations continue to have considerable questions. 
Australia, USDel, and others noted concerned about financial 
and human resource implications.  Australia warned against 
excessive emphasis on the CERF, vice other possible funding 
mechanisms.  Guterres said UNHCR,s increased involvement in 
IDPs would not lead to a bifurcated organization, nor 
undermine its "sacred" refugee work.  Various countries, 
particularly those with IDP populations, said the UN should 
only assist IDPs when governments invite the UN in.  The UK 
was notably positive about the new proposal, calling for 
rapid implementation.  Guterres committed to ongoing dialogue 
with EXCOM on the issue. 
10.(U) In a statement delivered to EXCOM by SYG Kofi Annan on 
October 6, Annan highlighted "accomplishments" of the 
September UNGA high-level event, including progress made to 
better address the needs of IDPs.  He committed to completing 
the reinvigoration of the Collaborative Approach.  Annan 
noted the important role UNHCR will play in this and the 
support expressed during the high-level event for the revised 
CERF.  He said pledges to date exceeded $150 million, which 
did not necessarily contradict the figure provided by Egeland 
earlier in the week.  Annan touted the establishment of the 
Peace Building Commission as well, saying its goal is to help 
ensure that peace takes lasting hold in countries emerging 
from conflict.  The Commission will help protect against 
genocide, and crimes against humanity.  Annan noted that 
returning refugees have a role in advancing peace and 
stability, as does UNHCR. 
 
11.(U) Comment.  In the General Conclusion on International 
Protection, EXCOM members took note of the IASC deliberations 
and encouraged UNHCR to continue to explore the feasibility 
of taking on some coordination responsibilities.  However, 
they did not give the explicit endorsement of the process or 
UNHCR's lead for which some in the UN were hoping.  USDel's 
discussions with various UNHCR officials reveal continued 
confusion about what exactly taking on these sector leads 
means, where and when this will be implemented, and how the 
organization will resource these new activities.  There is 
not much time before the IASC's December meeting during which 
these sector leads are meant to be finalized.  It seems clear 
that UNHCR believes it has sufficient support to initiate at 
least pilot leads.  The U.S. must continue to stress that the 
collaborative approach failed because important issues about 
funding, resources, priorities, and accountability were never 
resolved.  Unless these same issues are addressed before the 
cluster leads are launched, the "new" approach is likely to 
face the same old problems.  End Comment. 
Cassel