Iraq is moving toward transition, but hundreds of thousands of Iraqi families inside and outside Iraq are still struggling with acute poverty, displacement and the continuing effects of conflict.
The 2009 Consolidated Appeal for Iraq and the Region aims to meet their immediate humanitarian needs, contribute to stabilisation and speed recovery. Requesting US$ 547.3 million in total, it brings an unprecedented number of humanitarian organisations together across 12 countries to support Iraqis. The appeal is presented in two pillars: CAP Pillar I, coordinated by Iraq’s Humanitarian Coordinator, reflects needs inside Iraq; CAP Pillar II, coordinated by UNHCR, addresses protection and assistance for Iraqi refugees in the region, including groups resettled further afield.
This more coordinated approach to an appeal for Iraqis should benefit donors, humanitarian organisations and, most of all, Iraqis themselves. For the first time, donors can consider the total of United Nations and non-govermental organisations’ requests for Iraqis inside and outside the country over the next year. It provides a framework for UN and NGO collaboration across the region, including on returns.
Why do Iraq and the refugee-hosting region still need an appeal, considering Iraq’s security gains? Conditions throughout the country are on a positive trajectory, with rates of violence down by 75% since mid-2007, food insecurity a quarter of 2005 figures, and 21,000 IDP families returning home between June and September 2008
However, the impact of years of sanctions, conflict, discrimination and neglect is still extensive and severe. Livelihoods and infrastructure have been deeply damaged. Inside Iraq, pockets of acute poverty and deprivation where families need immediate help are only now becoming accessible. Availability of essentials such as water, sanitation, and health care is far below national averages in these areas.
Conditions for refugees in the region are equally challenging. Regional governments report hosting up to two million Iraqi refugees, of whom only a proportion – 310,427 – have registered with UNHCR as of end September 2008. Protracted exile is taking a heavy toll on refugee families. They face sharply rising prices for basic commodities, fuel and accommodation and the wider effects of the general economic slowdown. Many who were earlier coping with the difficulties have now exhausted their resources. Most cannot work legally, and very few are prepared to return to Iraq. The majority still rely on the generosity of host countries and international humanitarian support.
Governments have a key role to play in meeting these needs. In 2008, Iraq’s Government took the initiative to fund internal humanitarian action through its own resources. The Government donated $40 million to the 2008 Iraq CAP, and has also offered to support its neighbours’ efforts to make public services available to Iraqi refugees. The Government will also direct more of its resources towards the poorest Iraqi families in 2009. The international community strongly support these developments.
Governments in neighbouring countries continue in essential ways to be hospitable to Iraqi refugees, accommodating their stay under various de facto or de jure arrangements. Most grant refugees access to basic public services at considerable cost to the national treasury, and allow UN agencies and NGOs to address additional needs. They are maintaining the social, economic and legal space within which Iraqis can seek asylum and receive effective protection.
The combined CAP aims at supplementing and bolstering these governmental efforts. It focuses on filling humanitarian gaps in-country, and on sustaining the refugee population outside.
The appeal for Pillar I targets populations inside Iraq and it requests $192.3 million for the poorest and most conflict-impacted communities, identified based on evidence of greatest need. CAP projects will operate in locations where government assistance is still limited or not yet present, delivering basic, life-sustaining services and protection to the most vulnerable families. Re-integration of returnees, both IDPs and refugees, is among the priorities. The mid-2008 rise in the number of internally displaced families returning home has increased the pressure to ensure that homes and basic life-support are available for them.
The appeal for Pillar II targets Iraqi refugee needs in accordance with priorities agreed by all concerned humanitarian actors, and for the first time presents a comprehensive statement of their planned response. Pillar II requests $355 million, bringing together actions whose funding was hitherto sought through separate appeals or bilateral arrangements. The emphasis is on activities that will ensure host countries maintain welcoming environments in which Iraqi refugees can live their lives in safety and dignity while awaiting return or resettlement.
Both Pillars of the CAP have committed to regularly assess the effectiveness of the proposed humanitarian actions through monitoring and evaluation plans. A mid-year report on the progress of this CAP will be issued by mid-2009. These steps are critical both for accountability and for improving the performance of humanitarian organisations. Ultimately, this CAP must be measured by its impact on the lives of Iraqi people.
2009 Appeal