Reflections on a Refugee Response: Dolo Ado

It takes us ninety minutes to traverse the 54 kilometres to Kole, and by the time we get there there’s nothing shiny about our two Land Cruisers. The plume of orange dust that’s been chasing our wakes rests in a fine silt over every available surface. There’s not much shiny about us, either, the feeble efforts of the rattling air-conditioning doing little to counter the burn of the desert sun through the windows. We’ve been bracing against the bucking vehicle the whole way, and are sweating and achey.

We pass through the village in moments. It’s little more than a collection of mud huts at a bend in the track. Set back from the river, the land around it is more rock than soil, scorched like an overexposed photograph. Villagers gather at a public tap-stand with jerry-cans and donkey carts, the ground dark with the stain of their labour. Another k or so up the broken roadway, and the drivers haul us off to the left across open terrain.

At the bottom of a steep outcrop, we stop. When the engines die, it’s a tangible relief. We clamber up the rocks, careful of our footing. It’s myself, a couple of my team leaders from down here, and our guests- VIPs from one of our donor offices. There are eight or nine of us all up. At the top of the rise we perch on a small space pretty much shoulder-to-shoulder and survey the land around us.

In the middle distance we can see the line of the river, marked by a strip of dusty green, dark against the rest of the scenery. This side of the road, shoulders of raised rock- the remnants of an eroded plateau several hundred feet high- serve as two arms demarcating the edge of our little vista. They are treeless save for a few bushes stubborn in their refusal to wither. In the flat ground between them, the terrain is broken- flat-topped trees, thorny thickets, patches of sand, and a lot of orange-brown rock. A wadi snakes around the bottom of the outcrop and wends its way towards the river several miles away, the only source of any green nearby. The tops of termite mounds, eight and ten feet tall, emerge from among woody growth. With the engines stopped, when conversation lulls, the only sound is the wind. The sun makes the sun tingle with latent threat, even this late in the afternoon. Even with my darker complexion I know I’ll burn within thirty minutes out here.

A month from now, this- Bahale- will be the newest refugee camp in the Dolo Ado complex.

Dolo Ado, a series of small pastoral communities in a southeastern corner of Ethiopia bordering Somalia and Kenya, first started taking refugees in 2009. It was in 2011, however, that it came to the attention of the world as hundreds of thousands of Somalis fled a combination of civil war and famine, seeking shelter here and, more prominently, in Dolo Ado’s Kenyan cousin, Dadaab.

Never subject to the massive influx of Dadaab (which at its peak was thought to have well over half a million refugees), Dolo Ado’s camp population has risen to a more manageable figure of around 180,000. Nonetheless, with an offensive in south-central Somalia to overcome al Shabaab militants, the encroaching dry season, and the continued closure of Dadaab and the Kenyan border to new Somali arrivals, December 2012 saw one of the camp’s busiest months for over a year, registering more than 6,000 new refugees. Currently between 150-200 Somalis are arriving each day.

Dolo Ado is in Ethiopia’s Somali Region, and as the name suggests, it’s more Somalia than Ethiopia in many ways. It is vast- over a third of Ethiopia’s land area- and underpopulated- just 6% of the population. Dolo Ado is one of the most remote points in the country; even accessing the regional capital Jijiga is a six hundred kilometre trip on poor roads. Air access is granted to aid workers via a five-day-a-week flight operated by the United Nations Humantarian Aid Service. A twice-weekly Antonov-26 from Dire Dawa flown by a squad of Russian pilots bringing a precious cargo of qat is the only commercial service operating here. It’s two days of committed driving by four-by-four from Addis- far longer by bus. Insurgent groups ply the bush further north, the legacy of decades of disatisfaction with Ethiopian rule and a failed Somali invasion in the 1970s.

It’s the details, not the context, that highlight the Ethiopian link in Dolo Ado town. The government administrators, Amharic-speaking and ethnically distinct from the Somali majority. The round, tin-roofed Orthodox church on the edge of town that stubbornly blares Friday morning prayers over the surrounding populace, as though at tacit war with the mosques. License-plates scribbled with hand-drawn Ge’ez script, evidence of the vehicles driven over the border illegally and registered with the grudging acceptance of an administration that knows there are some battles it can’t win.

Other battles, though, it is fighting harder. The Ethiopian military essentially controls a 70-kilometre band of Somalia inland from the border, implicitly annexed to shore up its own frontier from incursions by al Shabaab and other armed groups that aim to destabilize their longstanding enemy. We visit the border, a couple of k’s outside town. A dusty road leaves town via the rubbish-dump, where a healthy crop of plastic bags adorns the briars and hooks of the thorn-fencing of nearby properties. Evil-looking storks, tall as my shoulder with beaks as long as my forearm, stand watch by the dozen over the waste like vultures on a battleground. Their bald red heads are topped by a tuft of fine hair, and they glare menacingly at anything passing them by.

The border is active. A stream of donkey carts pours up the track from among the trees, bringing merchandise into Dolo Ado from the Somali side. However fragile the government might be, capitalism is alive and thriving despite the war, and doing a better job of servicing Dolo Ado’s needs than the Ethiopian economy, by the looks of things. In front of the final checkpoint (a stack of hescoes- large earth-filled sacks- manned by a bored-looking soldier and a male and female guard with a metal-detector wand) taxis wait beneath the trees to transport people to the village. We see one with a shattered windshield, the glass punched out in front of the steering-wheel so the driver can see. People come across in small clusters, family groups. I see a weary looking woman, two older children ahead of her, two small boys behind. One, barefoot, carries four empty jerrycans over his shoulders as he walks in their footsteps.

The guard at the checkpoint stops us. It takes ten minutes to talk our way past him and his commander. We watch life slip past, mostly boys driving more donkey-carts, loaded with everything from fodder to iron rods, from truck tires to plastic drums. A man has a monkey. It sits in the dirt by his feet, and whenever he moves it jumps up and seizes his lower leg, riding his foot like a kid on a merry-go-round as he walks around. It mouths at its surroundings with big wide eyes, looking for all the world like an anxious, overly-attached toddler. I keep my distance. I don’t want to find out if my medical plan covers ‘monkey bite’.

Dolo Ado is seperated from Dolo-Somalia by a shallow river, brown in colour where it seeps under a steel tressle-bridge. We wander over onto the Somali side of the bridge before security good-naturedly stops us from going further. Boys bathe in the water and come running up unselfconciously beneath the bridge to wave and get our attention. A couple of days later, we’ll be back to try and arrange a meeting with our staff on the Somali side of the border and discuss how to support one another, but will be thwarted by bureaucracy. The Ethiopians are highly protective of their borders.

We visit the reception centre, a refugee’s first port of call. Knots of women and children, mostly, gather in restless groups, finding shade from the sun beneath wood-frame lean-tos with galvanized zinc sheet roofing. In different sections of the centre, their names are recorded and checked against databases, then fingerprinted on a digital scanner and issued a wristband that identifies them as refugees. I see a small boy- no more than four- with one of these near-indestructable tags wrapped around his tiny arm and I wonder how that must feel. I find the things irritating after a single evening at a club or concert, but now his very identity- his rights to shelter, food, water, healthcare and education- are tied inextricably to a plastic strap on his wrist. For some reason, the indignity strikes a deep chord with me. Later they will receive the ration cards which indicate which days they’re supposed to attend food distributions, how many Core Relief Item distributions they’ve received, and so forth. A help-desk sits in one corner to support children who come across on their own, without an adult family member to support them.

Our compound is not dissimilar to many others I’ve now stayed in. In an area a couple of football fields in size, it’s got a set of portacabins for offices, another set for accomodation, a communal dining hall, and some cement latrine and shower blocks. It’s rudimentary but workable. It has a stark, barren feel during the height of the day. Although January is not the hottest of months here, it’s easily forty degrees and more in the early afternoon, and the sun is fierce enough that it’s unpleasant to cross the compound without a hat on. Around lunchtime, the generator is killed for part of the afternoon to save power and stop it overheating, and staff take a nap for an hour or so until the heat subsides. I find the intensity of both silence and heat a heady blend, and enjoy sitting in the shade for a while, watching the sunlight burn off the crushed rock and soaking in the stillness. When I try and nap, sweat gathers beneath me, wetting my mattress, and shines slick in every fold of skin. I drink litres of water each day.

Buramino is the newest of the five established camps. We visit child nutrition programs, alternative learning centres and a new primary school, and interview refugee families. I take myself away from the drama of the trip and walk out into the middle of the camp. It’s arranged into blocks, which in turn should reflect community dynamics, although this isn’t always possible. Each block is separated by a large open strip of land, which should allow for drainage, and also for latrine and shower-block construction slightly away from dwellings. The dwellings themselves vary, some with tin roofs and square adobe-mud walls, others built around metal rod frames provided by implementing partners, others still more in the traditional Somali style, dome-shaped over a frame of sticks tied together and clearly initiated by the refugees themselves. Some are an odd hybrid of several styles, and the only common demoninator linking all buildings are the blue-on-white UNHCR tents that have been incorporated into each structure.

It’s crushingly hot. There’s no electricity out here, and in the absence of vehicle engines and generators, oddly quiet for a town of 35,000 crowded into an area that could be measured in football fields. The wind is a constant. A donkey brays, a plaintive, distressed sound. I watch women in colourful headscarfs cross the dusty spillway, gusts tugging at loose material. It’s mid-afternoon. At any one time I can see three or four dust-devils spiralling amidst the camp. Vortices, mini-tornadoes formed by the rapid heating and rising of air, they roll over the landscape, briefly engulfing tents and refugees alike with a swirling tube of roiling dust, before moving on with little trace of their passing except a fresh layer of settled silt, like powder snow. Sometimes when the wind blows, it rolls out a sheet of dust before it, obscuring the camp behind a hazy orange veil and staining the horizon for minutes at a time.

Our visiting VIP is interviewing refugees. The whole thing feels a bit of a circus, and I keep my distance, but also recognize this is part of the process of convicing people to push money the way of these refugees who desperately need it. So with my team we put in guidelines to keep it as respectful as possible, and I step out of the way. He comes out from the last interview and does a final piece-to-camera describing his experiences in the camp. I watch him from the back seat of the Cruiser and let him do his thing. He’s a life-long businessman, a former highly-powered CEO and high-flier used to dining with ministers and Presidents. I watch as his face crumples and he bursts into tears and has to break off the interview. He turns away for a couple of minutes, regains composure, and starts over. Fifteen seconds later he’s sobbing. When he climbs onto the seat next to me afterwards, he’s subdued for some time. I find myself wondering when all this stopped touching me emotionally, and whether that’s something that should bother me.

We drop our visitors at the airport in time for the mid-week UNHAS flight, while I stay on to work with the team. Meles Zenawi International Airport is the grandest name for a strip of gravel ever devised. The waiting area, newly refurbished, is a WFP rubbhall with the sides rolled up. Bags are thrown into the back of a waiting pickup, passenger names ticked off against a computer printout, and the passengers themselves settle back to wait for touch-down.

It’s a scene essential to any remote but active relief hub, and the flight is a game in aid worker cliches. It’s logo’d Land Cruisers lined up just beyond the earthen berm, and similarly logo’d expats and local staff milling around beneath the shade, all sat-phones and VHF handsets. There’s Crusty Old Bad-Tempered Aid Worker swearing alernatively down his handset at some driver who’s forgotten to bring something he needed, and at the local WFP staff inconveniently wanting to check his bags; Skinny, Weathered Gallic Aid Worker with VHF hanging from her fishermans pants, in ethnic sandals, an NGO t-shirt and a headscarf, talking nonchalantly with her local counterpart; Heavily Branded American NGO Team, standing awkwardly to one side; Frantic UN Agency Coordinator, with UN ID card flapping, a VHF in one hand and a satphone in another, trying to manage too many staff and agencies at one time; it’s like a SEAWL post all by itself.

The nights are hot and breathless. The generator goes off by nine, its tiresome rattle replaced by a deep quiet. A full moon lights the compound as well as any spotlight, casting deep shadows. I relish the embrace of warm air in the absence of the aggressive sun. When I cross the compound to brush my teeth, I keep a wary lookout for scorpions. Apparently the local staff caught a whopper two weeks ago.

My mosquito net has been poorly fixed, and although I usually like sleeping under the things, I have to drape this one over me like a blanket- neither effective nor cooling. I sleep without sheets until around five-thirty in the morning, when the air finally cools enough to chill my skin- a relief. The cold shower I take when I rise with the sun at half-six is at first bracing, then deliciously refreshing. The low sun casts long shadows over the open ground. Mornings, before the heat of the day sets in, are a beautiful time in the desert.

One night, I inadvertantly leave my eye-mask facing down when I spray the [highly potent] insecticide around my room before bed. Woken at 3am, I fail to equate the burning sensation over my eyes with the mask, and it’s not until dawn that I finally realise I’ve had toxic chemicals pressed against my face all night. My skin burns until the early afternoon, and I half expect to find epidermis sloughing off when I check myself in the mirror.

Early morning, and a pall of smoke and dust hangs in a breathless blue haze over Dolo Ado town. Minarets and cell-phone towers protrude, fitting landmarks of this frontier outpost. Heading back for the border we drive into the rising sun, misty and opaque where it drifts in the murk. Scraps of torn plastic festoon the thorn trees in an oddly joyous display, gleaming in the sunrise with celebratory fervour. We pass the rubbish dump, the storks ominous sentries. Boys race their empty donkey-carts across the flat, putting up plumes of dust that hang in the air, a canvas for the shafts of split sunlight. When we eventually draw up and kill the engines, the air is cool, and irridescent weaver-birds flit among the thorny branches, plumage shimmering in the low sunbeams. The first of the day’s refugees begin their journey into Ethiopia and a new life to the eager chippering of birdsong alongside now-laden carts pulled by protesting asses.

From ten thousand feet, I watch the camp complex slip below me as the UNHAS Dash-8, flight UN47W, follows the road north and west, back towards Addis. I recognize Buramino- I identify it from the layout of our project sites that I can see on the outskirst of the grid of huts, so much more ordered than the host communities- then follow the road along. Eventually I spot Kole in its bend in the track, and the river, and then the Bahale camp site- still just a near-empty plot of scrubland- right down to the outcrop of rock we stood on to survey the ground. Two months from now, this patch of desert will look like the other five sites. Shelters in neat rows, clustered in blocks, seperated by wide stretches of open ground and punctuated by NGO compounds and project sites. Deceptively ordered, from ten thousand feet. Deceptively clean.

You can’t feel the heat up here. Can’t taste the grit that blows between your teeth, or smell the stench of full latrines, or make out the heaps of disused relief packaging collecting at the edge of compounds. Can’t see the shelters wrapped over with mosquito netting, or the ones that have fallen down completely. Can’t sense the intense thirst beneath that unquenchable sun, or the fatigue that accompanies the mid-afternoon zenith. Don’t need to brace against a sudden squall of hot wind that grinds dust into the eyes, or answer the questioning gaze of young children against whom the world has stacked unfathomable odds. Can’t hear the stories that can make a grown man break down in tears. No, from ten thousand feet, it all feels rather hopeful.

Yes, They Know It’s Christmas (Today)

A few weeks ago, I resolved to write a somewhat snarky blog-post referencing that Band-Aid classic “Do They Know It’s Christmas“, a song written & performed by a number of top recording artists around Christmas 1984 in order to raise funds for and awareness of famine in Ethiopia.

The wonderful irony of the song, of course, being that Christmas in Britain in 1984 wasn’t Christmas in Ethiopia at all- so they most certainly didn’t know it was Christmas at that time, as it would have had very little meaning to them.

Today- January 7th- is Christmas, according to the Ethiopian Orthodox (Ge’ez) calendar- 13 days after western (ferenji) Christmas. So, Merry Christmas from Ethiopia!

And, whatever I might have written about the irony of that song title, with a little snark mixed in, and perhaps a sideways comment about the importance of knowing your context before blundering in and making assumptions, fellow blogger and fellow Addis resident Brett Keller got there first about two weeks ago with a very nice pithy summary, so I’ll direct you to that instead.

Malkam Genna!

-MA

Images of Africa

In a study reported by the BBC today, aid agency Oxfam has said that people’s negative impression of Africa was making it hard to raise assistance for the continent. Instead, Oxfam says it wants to improve the way people think about ‘Africa’, and present a more hopeful image. Says Oxfam’s CEO Dame Stocking:

We need to shrug off the old stereotypes and celebrate the continent’s diversity and complexity, which is what we’re attempting with this campaign. The relentless focus on ongoing problems at the expense of a more nuanced portrait of the continent, is obscuring the progress that is being made towards a more secure and prosperous future. If we want people to help fight hunger we have to give them grounds for hope by showing the potential of countries across Africa…

This cry is by no means a new one. Binyavanga Wainaina’s popular, passionate and now-mainstream “How To Write About Africa” is a scathing satire of mainstream western representations of the continent, and it wasn’t a particularly new issue when that was published in 2005. Concerns about donor fatigue- the idea that people constantly presented with images and stories of human suffering will stop giving, unless presented with ever greater and more shocking narratives- has been around for many years as well.

Part of the problem, the BBC says in its explanation of the report, is media representation of Africa as a place of suffering, famine and human misery. Columnist and correspondent Ian Birrell responded with a sharp:

And he has a point. NGO media campaigns, in their efforts to galvanize sympathy, do focus on stories of misery and suffering, often competing with one another for the most tragic stories to draw donors towards their campaigns, and reinforcing these negative stereotypes. The 1984-5 Band-Aid and Live-Aid campaigns, turning points in the history of NGO fundraising, began a trend of guilting the Western public into giving with a cycle of ever more shocking images and heart-breaking stories.

Of course, it’s a bit of a chicken-and-egg thing. The public certainly appear to ‘demand’ shocking images before they respond with financial support- but why? Is it that charities have produced more and more heart-rending pictures and tales into the mainstream media which have raised the public’s expectations and the media’s need to reciprocate? Or has a mainstream media desensitized the public through its efforts to sell air-time through ever more horrifying footage of calamity around the world, and in order to compete with the headlines, NGOs have felt forced into raising the stakes on their side as well?

It makes you question the underlying assumptions. We’ve been working within a paradigm for a good fifty years where it is assumed knowledge that in order to motivate charity, you must first demonstrate need. Must you? It’s worked over the years- to a point- but at what cost? The desensitization of a viewing public (at least in part contributable to NGO fundraising campaigns, and a certainly-complicit mainstream media)? The objectification of an entire genre of humans- the voiceless, hopeless poor? And, a much darker implication, that the negative view of Africa- as a hopeless, disaster-ridden, corrupt and diseased place so overwhelmed with loss and negativity- means that people feel dissuaded from giving or- worse- investing.

This impression that many people in the Western world have has, I suspect, got far deeper and more complex roots than simplified and cliched media and NGO messaging. Our own assumptions about chronic poverty in our own experiences come in to play- like the assumptions we might make about the homeless drunk who sits with his cardboard sign outside the supermarket; we quietly assume he is going to buy alcohol with whatever money he receives, and in subtle ways we transcribe that expectation onto the chronic poverty we see on TV screens. Cliched tales of African despots purchasing private jets with aid dollars linger, decades later- not, as Oxfam points out, that there aren’t portions of the African continent that have problems, such as chronic malnutrition, war and corruption. (Interestingly, though, even this representation is highly politicized in the public messaging we receive. A despot like Robert Mugabe is easy pickings as the prime example of the African strongman, and broadly criticized. Far less noise is made about leaders like Uganda’s Museveni, or Rwanda’s Kagame, both of whom probably have far more of their peoples’ blood on their hands, in retrospect. However because they have brought stability- or a perception of it- to their respective nations, their detractors have less voice.)

I think a lot of this stems, ultimately, to our fear of the unknown, of the other. The narratives presented, equally by fundraising NGOs or by media looking for a quick hook, gain traction with us because they connect with that disquiet deep inside us that sees something different, alien, something that falls well outside the story of our daily lives, and makes us uncomfortable. I think this is a human trait, and not specifically the domain of wealthy white people in suburban homes with cable TV. I also think that it is entirely possible to choose to overcome it, to perceive it, to change its influence on our mindsets, if we make the effort to recognize it, and if we make the effort to educate ourselves so that the other, that which is different, becomes less unfamiliar, more understandable.

I like the idea that Oxfam- not uniquely- puts forward, about understanding the complexity and diversity of the African context. I like the idea of challenging stereotypes. I think ways of thinking should and must be confronted and assumed narratives deconstructed, among the general public, among the mainstream (and non-mainstream) media, and among charities’ fundraising arms. I particularly like the idea of telling the story of people and places, of painting them as faithfully and honestly as possible, as balanced and lovingly as possible, of capturing their humanity, identifying with their commonality, and celebrating their differences- wherever they are from. I like the idea of stories being told by many different people- sure, Africans telling stories about Africans, but equally Caucasians like me telling stories about Africans, and Africans telling stories about Caucasians- and so forth, because each voice, each perspective, is a facet in our view of this complex jewel we call humanity. I’m reading a book, They Poured Fire on us From the Sky, written by three Dinka boys who were forced to flee their homes during the Sudanese Civil War, and one of the most interesting parts of the narrative, for me, is to read about the way they perceived western aid workers, people like me, coming into their relief camps.

Ultimately, I really like the idea that maybe, just maybe, the best way to get people to care for and contribute to the needs of the less fortunate is to humanize them, to show their potential, to showcase the good, and not the bad. Maybe.

So I agree with Oxfam, that people in need have to have their story told differently, and that representations of them in the media undermine their ability to grow, to be supported, and to be treated with dignity. And I agree with Ian, that blame rests equally on the shoulders of the NGO community as with the media’s. And I think it goes far deeper than either one, and that responsibility for this mindset ultimately belongs to the individual, who must choose to recognize the assumed narratives they frame the world with, or choose ignorance.

The Red Cross and NGO Code of Conduct, Article 10, states:

In our information, publicity and advertising, we shall recognize disaster victims as dignified human beings, not hopeless objects: Respect for the disaster victim as an equal partner in action should never be lost. In our public information we shall portray an objective image of the disaster situation where the capacities and aspirations of disaster victims are highlighted, and not just their  vulnerabilities and fears. While we will cooperate with the media in order to enhance public response, we will not allow external or internal demands for publicity to take precedence over the principle of maximizing overall relief assistance. We will avoid competing with other disaster response agencies for media coverage in situations where such coverage may be to the detriment of the service provided to the beneficiaries or to the security of our staff or the beneficiaries.

They’re good words. Good words to aim for. I’m confident that aid agencies consistently fail to live up to them- despite, I believe, many aid workers and their organizations truly believing these are good things to aspire towards. I also think it’s a perspective we could all embrace when we visualize those places less fortunate than ourselves- whether in some broad notion of ‘Africa’, or the homeless man outside the supermarket. And I think we can go a step further. Dignified human beings. With potential. With creativity. With dreams and visions. Among whom so many are working so hard to improve the world around them, and succeeding in ways small and large. Not to patronize. Not to simplify.There are shades of grey in everything. But to embrace the traits that make all of us human, regardless of where we’re from, and to recognize that in the ‘other’. I think if we could only perceive just how like one another we all are, we’d find we behaved very differently.

I’m not blameless in this myself in my own representations of the less fortunate I meet, although I do consciously work towards a balance. I enjoy analysing the complexity of things- specifically in relation to the aid industry. I try to look at times where the aid industry gets it right, and where it gets it wrong. Sometimes I do talk about the needs of people in Africa or elsewhere- though I hope I do so in a fair and dignified way. I’m no fan of the media- or well-meaning individuals- presenting a pathetic impression of Africa, or the poor. And yes, sometimes I write about the landscapes- after all, I’m also a photographer. But I also like to think I capture some of the people and places, and some of the hope too. Everything is nuanced. Nothing black and white. But feel free to hold me to account in the work I do.

An Update from Famineland

Donors tire of hearing about droughts and food emergencies. We know this, because we know how hard it is to raise funds for these places, and once a critical emergency has dropped off the headlines, the chronic crisis behind the scenes drops from public awareness. Following on from a disaster like the Horn of Africa famine, interest in the place kind of dries up. There’s little way aid agencies can come back to the public the next year and say, “Hey guys, guess what? There’s more starving people in East Africa”.

Which is unfortunate on two counts. First, because there are more starving people in East Africa. And second, because now we find it hard to raise support for them.

Take this, for example. This year has been a good year in Ethiopia. The rains were good, and the harvests pretty solid. Also this year, there are between three and four million acutely food-insecure people in Ethiopia. Think about that number for a moment. Three to four million. The size of a large city in most western nations. All those people, struggling to feed themselves for a variety of reasons- locally poor rains, low entitlements, poor infrastructure, lack of access to markets, displacement- there are dozens of reasons, all complex and all intertwined.

In fact, that’s only part of the issue. Because there are an additional seven million people chronically food insecure. That means that their ability to feed themselves and their families is compromised in some way in a long-term capacity. They may be able to meet some of their food needs, but not all of them. Seven million. We’re talking the population of a massive city, or a small country now. Switzerland. On top of the three to four million who are acutely food insecure.

And this is a good year.

Sound bad? It is. For every one of these ten million or so people who are either acutely or chronically food insecure, this is an unpleasant, demeaning and possible life-threatening situation, particularly for young children. And these concepts of ‘food insecurity’ are not just plucked out of the air- they are based on hard statistics, on international standards, carefully monitored by teams of sectoral specialists feeding into early warning systems nationwide.

And yet, lest you think I’m out here Ethiopia-bashing, I’m not.

Ethiopia has a population of around 85 million people. That means that across this large, diverse and populous African nation, 75 million people are in fact more or less completely food secure. We’re talking Ethiopia- the nation that brought us Band Aid and Live Aid, ghastly and inappropriate images of human suffering in the midst of famine.

More than that, Ethiopia’s government has a safety net program in place that caters for the needs of the seven or so million that are chronically food insecure. With a combination of cereal redistribution and import, bilateral and multilateral aid, the government, supported by operational partners, ensures that the seven million people struggling to meet their own food needs are catered for.

In other words, the Ethiopian government ensures that a good 81 to 82 million of its population of 85 million are in good hands.

And the balance? The balance are also catered for, through a mixture of NGO and UN aid programs, all overseen by the state. It’s not a perfect system. But it is a system. There is coordinated, nationwide monitoring and early-warning systems- which admittedly need tweaking to ensure greater resolution, but which are nonetheless present and functioning. There are welfare programs which, again, certainly require improvement to avoid over-dependence by communities on outside assistance, but which nonetheless prevent millions of people slipping into life-threatening starvation. And there is a network of response agencies funded by a mixture of outside sources who ensure that, under the coordination of the government and the United Nations, those who slip through the safety net receive appropriate levels of assistance.

The needs here are massive, in terms of simple numbers. And yet, at the same time, so is the capacity of both response agencies and the state. We can say three million, even ten million people in Ethiopia are in need of assistance, and we might be inclined to roll our eyes and voice with exasperation that question when will these African countries get their acts together and stop starving? The fact is, Ethiopia has a phenomenal capacity and has made enormous strides for the wellbeing of its population over the 25+ years since the 1984 famine. Most of the population is self-sufficient, and it is able to meet the needs of almost all people, even facing issues such as overpopulation, climate change and displacement. While the material backing for some of this assistance may come from outside, much of the capacity to implement is in fact domestic. The balance, though representing a large number of humans in absolute terms, is a relatively small proportion of the nation in context. And their needs are real.

It’s important to understand the nuances of a country’s context when calls for assistance go out. When a nation like Ethiopia declares a food emergency, as it did in 2011, it’s not because it’s some despotic failed state that simply can’t manage its own affairs. Instead it’s a nation that has made enormous strides in improving the level of support to its own people. It’s a nation in which nearly all people are able to meet their own needs, and the majority of those who are not are covered by ongoing state welfare support networks. It’s a nation facing geographical, historical and environmental challenges, and for the most part, coming out on top. But there’s still a small proportion slipping through the cracks. And for those people, we hope the world will hold back its assumptions and its impatience with what appears to the casual glance to be an intractable, unchanging problem, and provide the assistance needed.

9 Events that have Shaped the Humanitarian Industry

The humanitarian industry is a relatively new one in its current form. This makes it an interesting, frequently exciting one to be involved with, as it’s constantly changing. This can be a challenge, too.

I like to joke that the earliest disaster preparedness and response on record is Noah’s Ark. Then of course there’s the story of Joseph (he of Technicolour Dreamcoat ™ fame), who interpreted Pharaoh’s dreams of skinny cattle devouring fat cattle as an impending famine and subsequently requisitioned harvest surplus which he then redistributed to the hungry when said famine eventuated.

Humanitarianism as we know it today has, for better or for worse, become an industry, and has developed quickly from a relatively fringe activity best left to hippies and missionaries, to a multi-billion-dollar a year sector attracting a wide range of skilled and experienced professionals. It’s unique, dynamic and, certainly from an insider’s perspective, fascinating. But the way things look today haven’t popped out of nowhere. Over the last century and a half, the humanitarian industry has been shaped by a number of key events and moments that have given rise to its current dynamics.

1. The Battle of Solferino (June 24th 1859)

At the height of the Austro-Sardinian war, a Swiss businessman by the name of Jean-Henri Dunant travelled to the small Italian town of Solferino, where he witnessed the aftermath of a battle that left forty thousands dead and wounded. So struck was he by the plight of the casualties, many of whom were abandoned and left to die, or executed by the enemy, that he forewent his business plans and spent the ensuing days helping to organize medical care for the survivors.

The experience so moved him that upon returning to Geneva, he wrote up his memories, recommending the establishment of a movement of trained and neutral volunteers who could administer medical aid to the casualties of battle, and treaties offering such people protection. His recommendations became the foundation for what was to become the International Committee of the Red Cross (ICRC), as well as the first Geneva Conventions.

The Committee’s proposals, initially signed and endorsed by 12 nations in 1864, recognized the need for national committees of volunteers to provide medical assistance on the battlefield, but also enshrined the neutrality of wounded soldiers. The agreed international symbol, as laid out by the signed agreements, was a red cross on a white field- the inversion of the Swiss flag, itself a symbol of neutrality.

This notion of neutrality, and of non-combattants offering non-partisan support to the injured victims of warfare, became the founding tenet of modern humanitarian organizations, and the ICRC continues to this day to occupy a unique status under International Humanitarian Law and within the rules of warfighting. The Red Cross Code of Conduct forms the guiding set of 10 principles that most major NGOs voluntarily adopt as their core values, particularly enshrining the primacy of the humanitarian imperative, neutrality and impartiality.

2. The Aftermath of World War II and the Marshall Plan (1945, 1948-51)

Following the victory of the allied forces first in the European theatre, and subsequently in Asia, most of Europe in 1945 had been devastated. The extent of destruction caused by warfare and bombardment, the loss of millions of men at the peak of their economic productivity, and the diversion of years’ worth of resources into the machinery of war, meant that both society and economy across the continent was decimated.

Conversely, because it had stimulated its economy through the production of wartime assets without suffering any destruction of its mainland infrastructure, the USA had become the first country in history to economically thrive under conditions of warfare (a dynamic that has echoes today in how the economy operates while America is at war). In order to shore up its wartime allies, to assist with the vast humanitarian needs of post-war Europe, and no doubt to maintain the health of its key trading partners, Harry Truman’s government put together an economic recovery package of unprecedented proportions. It would see some USD 13 billion invested across western Europe.

Whether due to the plan itself, or due to the simple mechanics of post-war recovery, industrial output did increase substantially during the plan’s lifetime, and was deemed in many corners to have been a great success. The Marshall Plan laid out a framework for international foreign assistance that became increasingly the norm, with large bilateral or multilateral grants or loans provided to countries with struggling economies in order to lift their productivity and stability.

As well as normalizing the concept of foreign assistance on such a large scale, another interesting side-effect of such a large humanitarian crisis was the need to have capacity to deliver support, and so the US government agreed to allow private charitable organizations provide emergency relief to war survivors. Although the charity was not a new concept, this gave new impetus to non-governmental relief agencies, and many of today’s largest NGOs appeared around this time. CARE, which is an acronym for “Cooperative for Assistance and Relief Everywhere”, in fact originally stood for “Cooperative for American Remittances to Europe”.

A third impact of the end of the Second World War was of course the founding of the United Nations (UN), to replace the defunct League of Nations that had failed so miserably to prevent World War II in the first place. This occured in 1945. As well as spawning a host of international agreements on everything from trade to human rights, the UN also gave birth to a spread of sub-organizations with specific mandates. Among the most pressing in the post-war years was the plight of the tens of millions of refugees forced from their home in the fighting- and thus was born the International Refugee Organization (IRO) in 1947, which three years later became the United Nations High Commissioner for Refugees (UNHCR), one of the most dynamic and critical international organizations in the humanitarian field today.

3. The Biafran Airlift (1967-70)

In 1967, civil war broke out in Nigeria following a series of coups, counter-coups and ethnic killings, and the ethnic Igbo in the south of the country declared their own homeland, the state of Biafra. The Nigerian government responded by blockading Biafra, and a humanitarian crisis resulted, with millions of civilians caught up without food and medical supplies.

In response, a huge humanitarian operation was launched, and a mix of well-meaning volunteers and mercenaries, funded by charity organizations, began flying food and medical supplies into Biafra. The mission was fraught with danger- the Nigerian airforce would shoot down any relief flights claiming (most likely accurately) that weapons were being smuggled to the resistance. Flights were flown in at night, without lights, and landings orchestrated on roads in the bush where supplies could then be delivered to starving civilians.

By war’s end as many as three million people may have died, mostly due to a mixture of starvation and disease. The involvement of humanitarian actors, however, has subsequently been condemned. Not only did the relief flights facilitate the smuggling of weapons to the Biafran rebels, but some critics claimed that the relief assistance merely gave the Biafrans the resolve to hold out longer, exacerbating the humanitarian situation rather than surrendering and allowing the seige to end. One report put the toll due to humanitarian action at 180,000 dead. This was the largest and most high-profile instance to that point of humanitarian intervention being arguably partisan, and also contributing significant harm, not just good.

Another important cameo played out in the Biafran civil war. Red Cross workers were allowed to work in the war-affected areas to provide medical assistance, but under the guise of neutrality were not allowed to speak about what they were seeing. Witnessing atrocities against civilians committed by government forces, as well as attacks against humanitarian staff, this enraged some of the volunteers. Most prominent among these was Frenchman Bernard Kouchner, who felt strongly that the Red Cross’s stance on neutrality was an ethical compromise. He determined to establish an organization that was free of any government influence and could speak out on behalf of those affected by crisis, and the NGO Medecins Sans Frontieres (MSF) was born. MSF remains one of the foremost NGOs to this day, and is fiercely independant and proud (to a fault…?) of its independence from government, military and even international organizational influence. The actions of Kouchner and his peers also set a precedent for relief agencies advocating on behalf of the rights of the victims of conflict and injustice, not simply being silent responders.

Biafra introduced a whole new complexity to the idea of ‘neutral’ aid agencies on several fronts.

4. The Ethiopia Famine (1983-5) and Live Aid (1985)

From 1983, a combination of failed rains, civil warfare and the purges and collectivist policies of a communist dictatorship had pushed Ethiopia into one of the worst famines of the 20th century. By its end, 8 million people would be affected by famine, with between 500,000 and one million deaths. Images of its victims, made famous by BBC reporter Michael Buerke’s dispatches from the field, were broadcast onto TV screens across the western world, making the Ethiopian famine the first to really be witnessed by a western audience.

Galvanized by public sympathy, a group of some of the most popular musicians of the day joined together, led by the enthusiastic Bob Geldof, to form Band Aid. They recording a song to raise funds for Ethiopian famine victims, ‘Do They Know It’s Christmas?’ which became a Christmas Number One in the UK charts in late 1984. In 1985, Geldof again coordinated efforts for a fundraising concert, held simultaneously in the UK and the US, which ultimately garnered an audience of a little under 2 billion people worldwide and raised an estimated $150 million.

The Ethiopian famine and the subsequent fundraising efforts marked a watershed moment in the history of aid fundraising. Large amounts of fundraising money were no longer just the domain of governments, nor were charities restricted to small pockets of whatever they could raise through collection baskets and faithful donors. Furthermore, the idea of a world out there- the third world- experiencing hardship was suddenly projected into peoples’ homes and made a part of their day-to-day consciousness. Since that time, people- particularly in the west- have remained aware of third world disasters. It is part of the collective experience and expectation that there is a poor world out there that suffers things that people in the west do not tend to.

On the up side, this has made the job of convincing people of the need to give easier. There is also a downside. Since Live Aid and many of the confronting images that were broadcast to shock people into giving, people have slowly become increasingly desensitized to images of suffering. The awareness-raising and media campaigns for the Ethiopia famine also represented the major incursion of shocking images into the public space, to the detriment of the dignity of survivors which has taken years to break down (and is still a challenge in some sectors).

5. The Second Sudanese Civil War (1983-2004) and Operation Lifeline Sudan (OLS)

The civil war between the Government of Sudan (GoS) and the southern-based Sudan People’s Liberation Army (SPLA) ultimately resulted in two million deaths and four million refugees. Africa’s longest-running civil war, and possibly the most destructive, it too resulted in devastating images of famine as population groups were forced from their homes to settle in large, unsanitary camps where food supplies were precarious and disease rampant.

The international community established Operation Lifeline Sudan (OLS), a consortium of UN agencies and three dozen NGOs, in 1989, with the aim of delivering assistance to the mainly southern displaced people in camps both within and outside Sudan itself. A logistics airhead was set up in the small Turkana town of Lokichoggio, in Kenya, from which a vast operation of airdrops and relief deliveries was flown into Sudan. At the height of operations, Loki was the second busiest airport in Africa. OLS remains functional today, although not to the extent it was through the 1990s.

The civil war in Sudan was in part a proxy of the Cold War, and as such western allegiences found themselves favouring the southern rebels, both in terms of ideology and in terms of potential access to oil and mineral revenues in the long run. This was reflected in the huge amounts of funding that were invested in OLS, enabling such a massive aerial logistics operation. The offshoot of this was the explosion in budget of many of the NGOs party to OLS, catapulting some of them into the massive organizations they are today.

OLS also became an unwitting party to the conflict. Food aid became a weapon in the war on the ground, and was used to tactical advantage by both sides. By feeding humanitarian information to OLS, belligerents could influence where food drops were headed, and because populations would move to where the food was, they could thus influence the movement of people to their advantage in the field. It was an ugly ploy that cost the lives of thousands.

OLS’ involvement in the Sudanese civil war was a turning point in the humanitarian industry. As it became clear that the impact of food aid was having a detrimental effect on the people it was supposed to be helping, it began to become clear to the aid industry as a whole that they could no longer act out of the right motivations and still be operating with a clear conscience. The aid industry could no longer feign innocence- it was clearly becoming complicit in the conflict- and nowhere has this been more obviously demonstrated than in the Sudan civil war, and the ultimate secession of South Sudan as a state. With the humanitarian sector essentially propping up the southern government- even to this day- there is little doubt that South Sudan is a state that was created by the intervention of humanitarian actors. I have not seen any studies that suggest what the humanitarian impact might have been without OLS intervention, but I wonder whether the war would have lasted as long or cost as many lives, and I am utterly convinced that, for better or for worse, South Sudan would not be a state today.

The high profile of OLS, particularly the drama of large-scale airdrops, also had the unfortunate side-effect of cementing in the donor public’s mind that this was what aid was about- truck-and-chuck. It’s an assumption that twenty years on, the aid industry still struggles to re-educate the public about, making it hard to raise funds for other less appealing but often far more relevant issues such as human rights, advocacy and institutional capacity-building.

6. The Rwandan Genocide (April-July 1994)

During a hundred day period in mid-1994, Hutu extremists slaughtered over 800,000 Tutsis and moderate Hutus in a calculated, cruel campaign of extermination. Based on old ethnic tensions, a history of tit-for-tat killing sprees, a hate-fueled propaganda message, and the meddling and inaction of international powers, the Rwandan genocide remains one of the darkest stains on the concience of modern history.

The Tutsi-led Rwandan Patriotic Front, at the time a rebel army, swept across Rwanda and eventually brought the killing of Tutsis to something of a denouement. The Hutu extremists, together with nearly two million ethnic Hutus, fled ahead of the advancing front and found themselves in dire camps on the rocky lava flows of eastern Zaire. Unable to dig pit latrines, and living in deplorable conditions, cholera broke out and killed tens of thousands of the refugees in a matter of weeks.

While the international community had stalled and stalled again during the genocide, images of Africans dying by the thousands on TV screens now galvanized them to action, and millions of dollars worth of aid was flown into the Hutu camps around Goma- while survivors of the genocide were still receiving scant attention. As dollars flowed into the camps, the orchestrators of the genocide and their militias consolidated control over the population (and the aid resources), preventing the return of Hutus into Rwanda to begin a reconciliation process, and even launching attacks back into Rwanda (which the newly-installed Rwandan government returned with gusto). Eighteen years on, fighting continues to plague the forests of eastern DRC (as Zaire has since been renamed), with vicious slaughter of civilians and proliferation of horrific rape a daily occurence, while old scores are settled by both sides. The invasion of Goma by the Tutsi-backed M23 rebel group this week is the latest chapter in this story.

The failure of the international community to act to stop the genocide (something that could have been done with the right political will), and then the subsequent outpouring of international sympathy and support to the very purpotrators of that genocide- all in the name of impartiality and the primacy of the humanitarian imperative- remains the blackest spot on the history of the aid community. The concepts of neutrality, impartiality and humanitarian imperative all took a beating, and where at one time they might have been considered black-and-white standards, since Rwanda there has been a new appreciation for the shades of grey they embody.

The Rwandan genocide was one of three humanitarian interventions that went horribly wrong in the early 90s- the others being Somalia (1993) and the former Yugoslavia (1992-95). In the former, aid was appropriated by warlords and used as a weapon against a suffering populace, ultimately leading to a catastrophic peace-enforcing intervention. In the latter, UN forces with a sketchy mandate struggled to make sense of the deep-seated hatred of the belligerents, their biggest failure being the murder of 8,000 men and boys by Serb extremists in the beseiged muslim enclave of Srebrenica- even while a battalion of dutch peacekeepers stood by and did nothing.

The aftermath of these failed interventions gave rise to a whole new understanding of the complexity of aid and the potential for humanitarian assistance to be outright unethical. Approaches such as Do No Harm, which are mainstream today, were birthed from the Goma debacle, while standards such as the Sphere Project arose, in part to try and ensure that humanitarian actors were singing from the same songsheet and not tripping over each others’ toes.

In addition, the highly complex nature of operations following Rwanda began to make it clear that aid work was no longer just about well-meaning do-gooders with a social conscience. Humanitarian actors needed to be able to work within the highly complex contexts which aid found itself being delivered in- to be able to work both with the technical aspects, and also the political ones. Where up to and throughout the 1980s it was generally enough to have a heartbeat and a willingness to work in the field, the fallout from Rwanda, Somalia and Yugoslavia saw a push towards the ever-increasing professionalisation of the aid sector.

Ultimately, Rwanda served as a deeply humbling experience for the humanitarian industry. If nothing else, it robbed the industry of the moral high ground, and forced it to accept its place as a player within a political landscape, often to the detriment of the people it purports to support. No event before or since has communicated this message so clearly.

7. The Bombing of the Canal Hotel (August 19th 2003)

Following the September 11 attacks on US soil, the United States led a ‘coalition of the willing’ against alleged terrorist targets, first in Afghanistan from late 2001, and subsequently in Iraq from early 2003. While the aerial assaults and troop incursions quickly broke the conventional forces of both nations (where they existed), the result was a bitter and drawn-out insurgency overlaid on a highly complex set of tribal and sectarian divisions that has turned both nations into two of the most unstable places on earth today.

As coalition forces swept through different parts of each country, the UN and NGOs flooded in behind them to pick up the pieces- providing humanitarian assistance to areas that had been difficult for them to reach in prior times due to political and security restrictions. With pro-coalition governments in each nation ostensibly supporting the foreign presence, humanitarian space opened up rapidly, and was quickly filled by humanitarian actors.

The net effect of this to the anti-western belligerents- who saw the coalition invasion of their homelands as an occupation and who framed it as an attack on Islam- was to view (not entirely without cause) the presence of western aid workers as simply a second wave of the occupation. While the first was a military presence, the second was a cultural colonization that sought to unravel conservative social norms with western notions of human rights, gender equality, tolerance and so-forth. The humanitarians became the enemy.

On August 19th 2003, a truck bomber drove into the compound at the UN headquarters in Baghdad, based out of the Canal Hotel. 22 people were killed, mostly UN staff, among them Sergio Vieira de Mello, the UN Special Representative to Iraq, whose office was allegedly specifically targeted. One hundred were wounded. The attack was claimed by al Qaeda in Iraq. It was followed a month later by another bombing at the same site, and then a month after that, by a coordinated series of bombings that also targeted the Red Cross compound, killing 12. When it became clear that the humanitarian industry was no longer considered neutral by the belligerents but was being specifically targeted, NGOs and the UN withdrew rapidly from Iraq and began remote operations, based mostly from Jordan.

While aid workers had suffered incidental attacks, particularly while carrying out operations in active conflict zones, and had even suffered occasional deliberate attacks (for example the killing of six Red Cross workers in Chechnya in 1996), this was the first time that the industry had been targeted by a high-level campaign sending such a clear message. It did not mark the end of such attacks, either. Among other subsequent high-profile deliberate targeting of aid workers include the murder of 5 MSF staff in Afghanistan in mid-2004, the abduction and execution of CARE’s Iraq program director Margaret Hassan in November 2004, and the murder by militias of 17 ACF workers in Sri Lanka in August 2006. Roughly two hundred aid workers a year are victims of violence while on operations.

The Canal Hotel Bombing essentially set a precedent that said the humanitarian industry was no longer a neutral, impartial body but a party to the conflict, and as such a legitimate target. The industry has not been the same since. Aid workers now go through intensive security training before deploying to insecure areas. Aid agencies are jumpy about pulling their staff from hostile situations. Where once an aid agency’s logo might have protected them from violence, there are many places in the world where it is now seen to be something that puts them at risk. Significant portions of NGO and UN aid budgets are now spent on security, and in some parts of the world, NGOs struggle to differentiate themselves from military actors and government contractors who are agents of foreign policy and do not hold to humanitarian principles. No single event in the last ten years has had a bigger impact on the landscape of humanitarian action in insecure environments than the August 2003 bombing.

8. The South Asian Tsunami (December 26th 2004)

Early in the morning on December 26th, an enourmous tectonic rupture beneath the Indian Ocean triggered an earthquake of magnitude 9.2, generating a gigantic tsunami. The wave struck the Indonesian region of Aceh first, where the wave height was estimated at as high as twenty metres coming ashore, before other devastating waves washed up against southern Thailand, Sri Lanka, India, and eventually even the east coast of Africa. More than 230,000 people died and five million were impacted.

The event made the term ‘tsunami’ a household word as shocking images of destruction emerged on television sets and the toll grew almost hourly, almost defying belief. Western audiences, particularly struck by the devastation on the tourist beaches of southern Thailand, where thousands of European holiday-makers were among the casualties, poured sympathy and money into the subsequent relief response. Ultimately, $14 billion would be provided in international humanitarian assistance.

The public response to the disaster was unprecedented and overwhelming. NGOs quite literally received more money than they knew what to do with- and while one (MSF) publically closed its appeal once it had reached an amount it felt it could work with, most others continued to allow the funds to flow in, creating a massive surplus. The result was an organizational disaster as agencies tripped over themselves to try and spend their funds in a timely manner, squabbling over response sectors and geographical areas in order to stake out their territory and not dissapoint their donors. Many smaller NGOs popped up specifically in response to the tsunami with no knowledge of the humanitarian sector or its standards, and coordination across the board became at points nearly disfunctional.

The massive response to the tsunami- an admittedly enourmous natural disaster- occured against the backdrop of a number of other major world crises, particularly the war in Darfur, but also a devastating conflict in DRC, both of which were suffering from a paucity of international attention and funding. This frustration was exacerbated by the fact that the actual humanitarian needs following the tsunami were not as great as the scale of the event itself might suggest. While the death toll was high, the damage was limited to relatively narrow coastal areas, and the countries most affected (Sri Lanka, Indonesia, India and Thailand), while overwhelmed, all had some national capacity to cope. Nor were the majority of survivors at the same level of risk as those in IDP camps in Dafur or eastern DRC.

This reality led NGOs into a period of considerable soul-searching, and the revamping of fundraising processes, particularly around the concept of raising too much money for a crisis that did not need the funding, and how that funding might be redirected. The issue of transparency around NGO spending became a prominent theme.
The single biggest criticism, however, remained that of coordination. Although the UN’s cluster system had begun to be piloted, the failures within the humanitarian community in this regard created a renewed impetus for focusing on collaboration. In the years following the tsunami, the UN’s Humanitarian Reform program has become mainstreamed, and coordination between major humanitarian actors is now the norm- if at times still flawed- in any significant humanitarian response, and the central role of UN OCHA is largely undisputed.

The vast amounts of money raised and the numbers of humanitarian actors involved did however create a prime testing ground for a number of cross-agency initiatives. Humanitarian accountability, for example, was piloted across a range of response programs, while the notion of interagency evaluations also gained traction. Existing humanitarian standards such as Sphere were given a rigorous outing, and found to be largely robust.

Other knock-on effects of the tsunami response relate particularly to donors. The disaster set a new precedent for a shocking event against which all other disasters would be measured. It demonstrated just how fickle western donors could be (not a new truth)- the outpouring of assistance was demonstrably linked to people’s identification with Thailand as a holiday spot. It also raised the issue of donor fatigue. So many people had given significant amounts to the tsunami response that it became difficult to fundraise for any other disasters, including areas of arguably greater need, such as Darfur.

9. The Haiti Earthquake (January 12th, 2010)

When a large (7.0) and shallow earthquake struck near Haiti’s capital Port-au-Prince, it was that city’s vulnerability rather than the enormity of the quake itself that resulted in the scale of catastrophe that ensued. Between two and three hundred thousand people died, as many more were injured, and a third of Haiti’s population affected. Against the backdrop of a fragile political and economic state with entrenched poverty, and the intensity of destruction within the city itself, the impact was devastating.

Because almost all major infrastructure in Port-au-Prince was damaged or destroyed, aid floundered reaching the survivors. Reporting on the disaster was fast. Within a couple of hours of the quake, it was headline news, and details were pouring out aided by social media. Within twenty-four hours, most major networks had journalists and film crews on the ground filing reports, and the world’s giving public, again shocked by the scale of the tragedy, began to give.

They also began to ask questions. Within seventy-two hours, criticism was being ladled out that the emergency response was too slow, that international responders were not doing enough to get aid to the victims. The ever-accelerating news cycle, aided and abetted by Web 2.0, was looking for ways to build on the story. People, not understanding the complexity of aid as anything more than truck-and-chuck logistics, grew rapidly frustrated with what they saw as unacceptable delays.

The Haitians too played to the media. Savvy and well-connected themselves, they understood the potential of broadcast images to rally support for their crisis, and there were numerous reports of crowds playing up and becoming aggressive only once the news cameras were on the scene.

Crowdsourcing of disaster response information came in to play. Use of text messaging, combined with web-based crowd-sourcing platforms, triangulated the location of trapped victims and directed search-and-rescue teams to dig them out. The question of whether this was a good thing or not remains unanswered.

Haiti became the world’s first participatory disaster in many ways. Not only were people following along with information in near-real time- and contributing to it- but so too people felt that they had a right to get directly invovled. While the South Asian Tsunami had generated a lot of startup NGOs, the scale paled compared to what happened in Haiti. Due to its proximity to the US, as well as strong ties through the Haitian diaspora there, thousands- literally- of well-meaning but thoroughly unqualified citizens filled suitcases with money and flew on over to Haiti to contribute to the relief efforts. At one point, there were reported to be over ten thousand NGOs operating in Port-au-Prince.

While the UN coordination mechanisms had become well established by the time of the Haiti earthquake, they were insufficient to deal with the sheer number of ‘humanitarian’ actors, leading to accusations of poor coordination. In fact, most major humanitarian actors were coordinating reasonably well under the circumstances. The problem was, the influx of do-it-yourself do-gooders had no knowledge of the standards of behaviour developed to manage exactly this sort of issue, and simply did their own thing. Ironically, despite nearly thirty years of increasing standardization and professionalisation of the aid sector, Haiti marked a return to the days where anybody with a heartbeat, a will, and a wad of notes could carry out aid work.

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From its humble beginnings as a simple set of agreements around the treatment by volunteers of wounded soldiers a hundred and fifty years ago, the humanitarian sector has ballooned into a high profile, multi-billion-dollar and increasingly professional industry. The clear-cut principle of neutrality has been built upon, and then increasingly nuanced as the implications of high-value aid resources flowing into conflict and post-disaster settings has become increasingly understood. Aid workers have gone from being unsung heroes protected by their badges, to targets in an increasingly violent playing field.

Increased critical awareness of the impact of aid has led to the development of more and more standards and tools to unpack that complexity, while tragic mistakes have lent a sombre, self-critical and often cynical edge to the notion of international do-gooders.

The expectations of a giving public have shifted too, from a time when charity was the domain of churches and old ladies, to today where major emergencies become causes celebres among teenagers or corporate businessfolk, and revenues are measured in the billions. So too as the world has shrunk, ease of travel has increased, and communications media has accelerated, the giving public is increasingly interacting with disasters in near-real-time as they unfold, creating expectations often unrealistic at best, very often ignorant.

Aid now operates in a highly politicized environment with rapid changes, almost incomprehensible flows of information, and a vast and shifting range of constituents, all of whom require satisfaction on one level or another. With every major disaster or event, the aid world changes, and the goal-posts shifts.

For all its failings over the decades, one thing that stands out is that the aid industry- like many of the people who have to respond on the ground- is by very nature flexible and adaptable, changing as its circumstances change. It’s made its mistakes, and it remains a deeply flawed sector. But for all that, I couldn’t see myself in any other.

What do you think? Are there any other key events in the history of humanitarianism that you feel have had a major impact on the development of the sector?

Dear Santa…

It’s Christmas tomorrow. Cue M. bursting into our bedroom at 7am (not unusual for a Saturday) to announce excitedly that Santa Claus would be visiting tonight. Santa & Mrs. Claus were less enthusiastic about the early morning announcement, but we get it. We were six once too. In the meantime, there’s fairy lights on the Christmas tree and draped all up the staircase, a small but growing pile of wrapped gifts on the living room floor, and the girls are planning on making a gingerbread house this afternoon.

Except for the tinsel and a reduced staff load, however, you wouldn’t know it’s Christmas at work. Humanitarian life goes on. If anything, this week’s been a doozy. I got back Monday night from a brief visit to Dili, Timor Leste, to do some planning ahead of next year’s elections, and my week hasn’t really stopped since.

In the West African countries of Chad, Niger, Mali, Mauritania and Burkina Faso, there’s a growing food crisis. Really it’s just an extension of the chronic food insecurity and malnutrition that exists across much of the region. Fragile economies, unreliable rainfall, deteriorating soils, climate change, population pressure, feeding practices, access to clean water and health care- in brief, a whole host of reasons- all make rural populations highly vulnerable to any shocks in their livelihood production systems. While the indicators for the coming season across the region as a whole are not all bad, and while there isn’t the threat of widespread emergency or famine as in the Horn of Africa this year, but regardless millions of people (around 6 millions of them) in pockets in all five of those countries are going to struggle to feed themselves. The hunger season- traditionally beginning any time between February (in a bad year) and May and running until the harvest in September, has already begun in places, with some households out of food already, and some child deaths reported. Niger is still recovering from a difficult year in 2010, and 2012 is likely to see elevated rates of malnutrition and, realistically, the likelihood of significant numbers of child deaths if relief efforts are not stepped up.

The food security outlook for Sudan has been released this week by the USAID-sponsored Famine Early Warning System- the gospel when it comes to classifying global food shortages. It rates areas on a five-point scale (IPC- the Integrated Food Security Phase Classification)- No Food Insecurity, Stressed, Crisis, Emergency and Catastrophe. Large areas of western Sudan (Darfur) are forecast to be in Crisis (IPC level 3), while several areas- significantly those in ongoing conflict, particularly South Kordofan and Blue Nile- are anticipated to be at Emergency levels- levels similar to those seen across most of northern Kenya, Puntland and southern Somalia earlier this year.

And while on the subject of Sudan and conflict, tensions between Sudan and South Sudan (which earlier this year separated from Khartoum-led Sudan following a popular referendum) continue to escalate. Aerial bombardments of populations in disputed areas continue. Troop build-ups are reported. Pro-north militias in the south are allegedly forcibly recruiting southern Sudanese refugees in Khartoum and making them fight against the south. MSF reports large-scale displacements. While the food security outlook for South Sudan is less alarming than for Sudan, the combination of unpredictable population movement and the increasing indicators that large-scale conflict is likely are major concerns over the coming months.

If there’s good news to be found in sub-Saharan Africa right now, it is in the Horn of Africa, where rains have started to bring about an improvement in the drought and famine over the past couple of months. Grazing pasture is reported to be returning, which will support pastoralists, while wells are replenishing and food will soon be able to be grown in some areas. The UN has declassified some areas of Somalia from Famine (Catastrophe) to Emergency, and humanitarian support has been credited with having had a significant impact in this area. That said, huge portions of the Horn of Africa remain in very serious food crisis, and some populations still remain at Catastrophe (IPC Level 5) levels, particularly areas around Mogadishu and with high IDP populations. In addition, while the rains have improved some conditions, they have worsened others, making runways unusable by relief flights, bogging down overland trips which now take three days in place of one, and, most serious of all, spreading Acute Watery Diarrhoea (AWD) which has been credited with hundreds of deaths in recent weeks among Somali IDPs. We won’t talk about the security situation, which continues to simmer at the very most unstable end of the spectrum, with troops from Kenya and Ethiopia engaged in de facto unilateral action against al Shabab militants, who in turn appear to be strengthening ties with global terror networks like al Qaeda, and continue to destabilize the Transitional Federal Government (TFG) and the Africa Union Mission in Somalia (AMISOM). 3 Somali aid workers were killed in Somalia yesterday, motive as yet unreported.

Leaving the African continent, more than forty thousand people have been impacted by heavy rains in northern Sri Lanka this week. The districts of Kilinochchi, Mulaitivu and Jaffna have all been hit by moderate flooding, with the government calling on local NGOs to respond. The past eighteen months have seen northern Sri Lanka slowly being rebuilt in the wake of a thirty-year civil war that saw twenty thousand reportedly die in the early months of 2009 alone, and as such is an immensely fragile area. More heavy rain is forecast.

Heavy rain this week in the Philippines also triggered tragedy in Mindinao, in the southern Philippines, when flash floods tore through several areas during the night. A thousand dead have been recovered, and the government reports another thousand remain unaccounted for. The Philippines sees death and destruction on an annual basis at the hands of powerful storm systems, like Typhoon Ketsana in 2009 that caused extensive damage in Manila. This however remains one of the deadliest events in recent years.

Even closer to home, a storm system is building off the north coast of Australia and is due to make landfall on Boxing Day some hundred kilometres east of Darwin as a Category Two tropical cyclone, with the potential for damage. And yesterday, two large, shallow aftershocks struck Christchurch- where nearly 200 people lost their lives earlier this year and large portions of the city were destroyed- triggering fear and distressing memories for many folks living there.

Papua New Guinea’s government remains in a state of considerable uncertainty as two senior politicians- Sir Michael Somare and Peter O’Neill- face off over disputed leadership, with the threat of unrest and violence a major concern. President Laurent Kabila’s victory in the Democratic Republic of the Congo’s polls has been confirmed by the courts, but criticized by international observers and denounced by political rivals. Police action in that country has lead to the deaths of over two dozen people in recent days, and the country remains under scrutiny to see whether further political violence will spiral out. Iraq has experienced a massive series of coordinated terror attacks in the wake of the US pullout of troops, with its government split along sectarian lines as Vice President al-Hashemi is accused of ties with terrorism and a looming threat of spiralling civil violence. Syria’s internal conflict has stepped up a notch, with a powerful and sophisticated car bomb targeting security forces and civilians in Damascus killing 44 people and injuring scores more. Drug-related violence continues in Mexico at a rate rivalling that of many civil wars, while concerns over insecurity in Afghanistan in the face of a US troop drawdown there in 2012 are increasing, given ongoing levels of insurgency across the country and a fragile, divided state government. A recent leak claims that Pakistan’s government fears a coup by the military is on the cards.

You could say things are busy right now.

I don’t write this to be a downer, or guilt you out, or anything else. Christmas is a time for celebration, for remembering those people and values in your life that are important, for those of us with faith to celebrate what we believe to be a pivotal gift to human kind, and to be close to the ones you love. For me, however, the values of being a humanitarian- remembering those people who are in need in a wide range of ways- is central to reflecting on this season which can be so materialistic, shallow and self-focused. It’s an opportunity for me to take a look around, take a breath, get some perspective, and reflect on what I can do to make the world around me a better place- starting with my family and working outwards from there.

Friend, fellow humanitarian & social media-ite @richendag, who works for INGO World Vision, posted this letter that the Grade 2 daughter of one of their supporters wrote in class for Santa Claus a couple of weeks ago.

If that’s a little unclear, it reads:

Dear Santa,

This year I have tried hard in school, helped mum clean the house tidy, and made new friends. All I really would like is the Kenya people to have a home and something to eat and drink please. Right now they are probably eating dirt. Thank you. Love from Lauren.

Nuff said really. She gets it. You go, Lauren.

Tonight, M. asked if Santa Claus was going to be visiting all the kids in the world, even the ones in places I go and visit when I travel for work. We had to tell her that no, Santa doesn’t visit all the kids in the world, that there are some kids who miss out at Christmas. At bed time, she reflected sadly that it wasn’t right that Santa didn’t visit some of the sick kids. With luck, she’s on her way to getting it too.

Merry Christmas all of you, and rich blessings to friends, family and loved ones for 2012.

 

Why Aid Agencies Fail to Stop Famine

I’m starting to get a little ratty with all the media right now talking about the Horn of Africa.

Articles are starting to look like a fill-the-blanks template that the reporters are all sharing around: Quote some stats about the famine; talk about the complicating factor of al Shabbab making life difficult in Somalia; drop in some pithy quotations about the fact that short-term aid is repetitive and doesn’t solve the underlying problems (always with a nod to the fact that, well, of course it saves lives now); then end on the dark yet hopeful twist that while aid agencies clearly don’t have it right, clearly what’s needed is ‘long-term solutions’.

Yeah, cool, thanks.

Interestingly, the reporting, which feels cookie-cuttered from every other cyclical emergency that pops up around the African continent (alternate Somalia with Niger, Sudan, Kenya…) is exactly the sort of thing that the reports slam aid agencies for doing in their emergency appeals: Template emergency request, paste photo of child in malnutrition centre top-right, insert country emergency name here.

But what I’m really ratty about is not that what the media are saying is wrong per se. My problem is, they’re making noise but missing the point.

Two of them, actually.

By rabbiting on about long-term solutions (I’m sorry, what solutions did you suggest, exactly?), they make it sound like nobody’s ever come up with that idea before.

[Cue professional aid workers the world over beneath newly-illuminated lightbulbs slapping foreheads, exclaiming “Long-term solutions! Of course! Why didn’t we think of that?]

The point is, aid agencies know about this. They speak this language. They can ream ideas out ad nauseum, et cetera, et cetera.

This is not new.

It’s just that, they suck at implementing them.

That’s point one.

Point two is, these solutions aren’t simple in the real-world. But we’ll come back to point two later.

***

Aid agencies have a presence in pretty much all these places that suffer cyclical emergencies. Long-term presence. And presence that isn’t just based on emergencies, either. Long-term community development, empowerment programs, child sponsorship, infrastructure development, food security projects, governance, microenterprise development… In short, kitchen sink included.

So, shouldn’t the presence of aid agencies stop famines from happening?

In principle, yes.

In practice, a woeful no.

Why not?

Well, it would be unfair, but only partly inaccurate, to say because ‘aid agencies aren’t doing their job’.

There are other factors, of course, the most significant being that macro-level factors (global economy, environmental trends) do in fact overwhelm the relatively small investment that NGOs make by comparison. But, it’s not only that.

Most aid programs, however much they might claim the opposite, are not geared to manage pending emergencies. Their activities are not built to context. Their funding sources are restrictive, their monitoring and analysis is not geared around mitigating risk, and their management systems are too rigid to adapt.

Each in turn.

Needs Context

Most aid agencies have their way of doing things. Although they will all claim that their interventions are based on need, most of the time their interventions are based on an assumption of need. Their assessments are often facipulative or partipulative. Their approach is dictated by their organizational ethos, the way they’ve done things in other places. Very rare indeed is the [large- and read, able to make a significant and multisectoral difference over an area sufficient to mitigate against the effects of famine] aid agency for whom each project is truly designed from scratch. Most have to fit a donor funding model, match up with existing organizational skills and experience, fit into standard monitoring and evaluation frameworks, and are lifted from projects and programs that have been run elsewhere.

Most agencies don’t realise that they are a solution looking for a problem. And their ‘solution’ may not be what’s needed.

What is needed?

Context analysis.

Let me say it again: Context analysis.

And I don’t just mean context awareness. All the gathered knowledge in the world won’t save us if it’s not applied. I mean a critical appreciation of the various factors that influence trends, patterns, norms and change, taken and re-applied in an intelligent way to what action is planned.

Agencies have to learn to go in there and fit their interventions to the reality on the ground. Not the reality they assume is there because it looks similar to some other place, or because sweeping the eye over the landscape makes it clear that they lack a particular resource which the agency knows it can provide.

Macro-level. Micro-level. Understand relationships. Understand the need, and the reasons for that need, and the reasons why those reasons exist. Make the communities you’re targeting a part of your analysis process so that you can learn their perspective and, if they’re interested, they can learn yours. Then figure out not what services you can deliver, but what changes need to happen to the situation to change the need that has been identified.

And that is already way too oversimplified.

Easy? Of course not. It involves time, flexibility, intent, relationships.

The frustrating part? Aid agencies have already had time. Twenty, twenty-five, thirty years of it. And if you go into some of these places and talk with the field staff, or the community members, when you drill down into it, they do in fact know a lot of this stuff. But the projects aren’t built around that context. They’re still matched to organizational norms, easily summed up in a donor report and an implementation table.

This has to change.

Funding Patterns

Agencies have their sources for funding long-term programs. Sometimes they’re long-standing cooperation agreements with institutional donors, where five years’ worth of funding is guaranteed for a particular community and sector. Sometimes it’s child sponsorship, where donors provide funds to the agency on the basis of a link with a child in the community in which the agency provides support. Sometimes it’s from general donations sourced from a faithful donor base.

Too often, these funding sources are restricted- either by the donor, or by the agency. If an agency has promised a donor a particular type of activity- providing clean water, or providing education- the agency may not be able to use those funds in other sectors. In some agencies, donors and not the agency have the strongest say in what sectors, approaches or activities are used (guaranteeing that we miss the context). In other cases, the funds may be more malleable, but still tend to be geared towards a suite of perceived acceptable activities.

Of course, these funds are often the agency’s bread and butter, providing the bulk of what keeps the agency in business, so making changes to how those funds are spent is a risky proposition.

When dealing with a context, like the Horn of Africa, which routinely slips into a crisis, we see a pattern. Existing funds continue to be pumped into the agreed sectors because there’s no donor flexibility to jump to other, more needy sectors. Activities continue to be geared towards the long-term development context without taking the emergency context into account, because this is what the organization has promised to deliver with the funding.

It sounds basic, but this is essentially what happens.

And if we’re also seeing a situation where the project has been cookie-cuttered into place, rather than built to context, then this is only going to be compounded.

What’s needed? Well, der, flexibility. On behalf of both donors and the agency. The agreement that, when a crisis emerges in a long-term program area, the agency can switch its donor funding into what ever activities it needs to to meet the needs. Not an unreasonable request, you’d think, for a donor who wants to help communities. So long as the donor trusts the agency.

And, of course, the organizational will and apparatus to do-so.

Thus avoiding the need to launch a fresh appeal every time a new emergency cycle appears in a place we always knew it was going to.

Monitoring and Accountability

And that’s the thing. We know. We often know. We knew about the Horn of Africa drought months ago. Many agencies began responding, in their own small way, long before this was a media circus. Mostly by tagging a few auxiliary activities onto their existing programs with a bit of extra funding. This was in part, to be fair, restricted by the lack of donor interest in the burgeoning crisis. It wasn’t until the media started making a fuss about it a few weeks ago that the public and governments sat up and started taking notice- making them equally complicit in this debacle.

Subject of another discussion.

Where aid agencies struggle though, and this is closely linked to the funding issue, is their indicators for success. When a block of money is granted to a project, there are almost always guidelines around how that money can be used. Hit the agreed targets and indicators, and the project is deemed a success (even if impact is negligible, uncertain or not measured).

And these targets- generally based around what can be produced by the project activities themselves- are most commonly concrete deliverables. (Some, granted, are vaguer, but these are both harder to measure and harder to get funding for.)

What long-term development projects are almost never measured against is their success at reducing the likelihood or impact of known crises in the area.

A malnutrition project may measure the number of children treated (in this case, a crisis that produces lots of malnourished kids actually makes the project look good!). A food security project, the increase in yield produced or the increase to household income- if the agency is really doing its job. Very rare is a project held to account for averting- or failing to avert- a crisis like a famine.

Despite the lip-service that agencies pay to having a positive long-term impact on a community’s context, very few of them can demonstrate this empirically, and even fewer actually hold themselves accountable to this principle in tangible terms.

They need to.

In fact, this should be the very raison d’etre of any long-term development project in an area known to be vulnerable to a particular disaster. Before we start launching into a wide array of obscure assistance packages that are au fait with our donor audience, let’s first make sure that our communities have food, water, shelter, and that we’re greatly improving their chances of hanging on to these things when the known and quantifiable threats this community faces materialise.

And, let’s actually hold them accountable with our measures of success and failure.

It’s called Disaster Risk Reduction. But like so many other technical terms that get touted in the industry, this one lost its currency almost before it had any. It’s another tick-the-box theme that pops up on proposal templates. “Explain how this project will reduce the impact of known disaster risks.” A paragraph of blurb, donor nods and signs the cheque.

Why does such a basic, logical and common-sense principle get sidelined? Partly staff knowledge, partly organizational will.

Internal Systems

Many agencies have a firm divide between what is ‘development’ and what is ‘aid’. Long-term presence in communities is generally to acheive development outcomes. Emergency situations require short-term aid interventions, after which the aid cowboys can bugger off and leave the development professionals to their job of transforming communities.

Staff are not trained to live in both camps. Either they are aid workers, or they are development workers. It is not uncommon to find development workers resentful of having to change their activities because an emergency operation has been mobilized and their manpower is required. And by the same token, assessing long-term development projects for their suitability to the risk context bores a lot of aid junkies.

So staff lack the training, and often the knowledge. But they also lack the motivation. Because they’re held accountable to different outcomes. While aid workers might be expected to meet indicators around services provided in an emergency, long-term development workers will be expected to deliver on achieving their project targets. Getting the organizational systems- including operations management and staffing- to shift from one mode to another without completely shifting the operational and staffing structure- is very hard.

What am I saying? I’m saying that we need to train our long-term development workers to be short-term emergency workers as well. A staff member working on a water infrastructure development project needs to, at the drop of a flag, be ready to become a staff member working on an emergency water project. Staff managing a program to reduce chronic malnutrition must, when the indicators are reached, start managing acute malnutrition instead.

They need to be supported by flexible systems and management, and an organization that is ready to react when thresholds are reached.

***

In summary, a major reason why aid agency presence has not translated into reduced vulnerability to, for example, famine, is due to aid agencies not being geared to do just that:

• Aid agencies do not build their programs around context, but are influenced by donor interest, assumptions, internal capacity and their own models of approach.
• Aid agencies don’t have resources that can be quickly tasked from one mode of operation (development) to another (emergency response).
• Aid agencies’ internal measuring systems do not hold them accountable to how well they reduce the risk of a disaster happening, only on how well they acheive project deliverables.
• And aid agencies own internal systems and staffing do not allow a seamless transition from a long-term development presence to an emergency response.

As such, aid agencies condemn themselves, much like the context they are in, to an endless cycle of superimposing an externally-funded, externally-managed and externally-staffed emergency response program, when in fact they have plenty of funding, management and staff capacity in-place. It’s just not being directed properly.

***

All that said, for correspondents to sit in their air-conditioned offices and take pot-shots at aid agencies for their inability to come up with ‘long-term solutions’ without offering any themselves; to criticise media circuses in refugee camps without ever acknowledging that this is exactly where their story comes from; to slam hyped-up emergency funding appeals while their own publications feed off the drama created by images of dying Africans; and to condemn aid agencies’ slow response to the emergency when the attention which agencies require to raise resources is so largely crippled by the media’s short attention-span with chronic disasters; makes these journalists run the risk of being obtuse, hypocritical, or simply missing the point entirely.

Want to be part of the solution? Get to grips with the complexity of long-term crises and find ways to engage your audience so that donor funding is more forthcoming, understanding more sympathetic, targeting both more flexible and more intelligent. And where aid agencies aren’t doing their job right, don’t just regurgitate pithy soundbites. Take time to find where the holes are, then hold these agencies to uncomfortable account in the public light and show them where change is actually needed.

This isn’t rocket science. It’s about logic and common sense. Let’s be honest about these gaps and encourage change among agencies, donors and the public alike.

It’s not that aid agencies don’t think about long-term solutions. They have the language coming out of their ears. It’s that those solutions don’t match the context and aren’t backed by an operational reality that supports that sort of change. And until they’re forced to change because their survival depends on it, they may not.

***

Complexity coming up in a subsequent post.

Je m’excuse for the plethora of Francophone cliches. I was ranting.

Somalia: Famine, Access and al Shabbab

Somalia is understood to consist of three states of varying autonomy. ‘Somalia’, with its seat in Mogadishu, is frequently refered to as ‘South Central Somalia’, and while it alone has international recognition as a nation-state, the political forces that control the state by name in fact cling to a handful of Mogadishu suburbs, and not much else. Puntland, occupying the corner, or horn, of Somalia, is aligned with the Mogadishu government but has its own para-state structures and functions largely independantly. Somaliland, which makes up most of northern Somalia, is a semi-autonomous state that has recently celebrated its 20th anniversary since breaking away from Mogadishu, and continues to strive for international recognition.

For the last five years, al Shabbab has been growing into the most powerful insurgency group in south-central Somalia. A militant group which aligns itself with al Qaeda, al Shabbab is in effect in ‘control’ of the majority of territory in South-Central. There’s no simple way to explain the power dynamics within this portion (or any other) of Somalia. Its base is a nexus of clan affiliations and alliances of varying reliability and strength, and a combination of ideology, brutality, and ‘the enemy of my enemy is my friend’. Its main opponent is the Transitional Federal Government (TFG)- ostensibly backed by western governments who are increasingly wary of the TFG’s corruption and incompetence, and supported by an Africa Union peacekeeping mission (AMISOM) staffed largely by longsuffering Ugandans. However there are plenty of groups opposing al Shabbab from within Somalia as well, including various clan-based rivalries.

Since 2006, when al Shabbab began to rise to the fore with the splintering of the Islamic Courts Union, it has waged war not just against the TFG, but also against targets it deems representative of western influence- much in line with other militant groups such as the Taliban, and various branches of the al Qaeda network (yes, I see the redundancy there). This has included aid agencies. Between 2008 and 2009 as many as 42 aid workers were killed by al Shabbab, and by late 2010, virtually no western aid agencies (including UN agencies) had any significant presence in south-central.

While al Shabbab does exert a level of civil control with para-state structures and local governance institutions, its reach is fragile and its support services largely ineffective, with its focus on warfighting and territorial control. The impact for the Somali citizenry in al Shabbab-control territories has been a dearth of basic services- education, health, infrastructure development- and it is not coincidental that the areas which the UN last week declared a “famine” (a technical term relating to surpassing a specific threshold of mortality and malnutrition in a given population)- Bakool and Lower Shabelle- are under al Shabbab control.

In a radio interview on the 5th of July, an al Shabbab spokesperson indicated that al Shabbab was commencing drought response activities, and that it would allow support from anybody, muslim or non-muslim, who only had a humanitarian agenda.

This implied a shift in position for al Shabbab, which had banned aid agencies from its territory since 2009. The implication of the message was that western aid agencies were welcome to begin operating in its territory again, and would presumably be safe to do so. The UN has already commenced drought response operations, and many other agencies are now considering their options.

But why aren’t aid agencies pouring into Somalia as we speak? If al Shabbab have said that it’s okay, what’s the delay? Surely the need of the Somali people on the ground is so urgent that it’s now time to rush in with all our resources and do whatever we can?

Well, in some ways, yes, it is. In others, not so simple. Here are some of the issues to consider that I understand many international organizations are currently wrestling with.

Security

An invitation from al Shabbab central command may sound like a good enough reason to think aid workers would be safe re-entering south-central, but in fact it isn’t. Like many insurgency groups, al Shabbab is as much a network of affiliated warlords as it is a hierarchical paramilitary organization. Fighters on the ground- the ones with guns, grenades and IEDs- will align themselves first with their local commander, and only after that with al Shabbab central. Then there’s the assumption that the message is even getting down to those field grunts and their captains. Or the notion that some 16-year-old with an AKM, who’s never been to school but has spent the last ten years being told that westerners are pillaging his country and deserve to die, will pay any attention to some recent order from someone he’s never heard, when he sees an NGO Land Cruiser drive past.

South-central is heavily mined, and with shifting fronts and ongoing combat operations, new explosive devices are still being laid. Al Shabbab and AMISOM fight almost daily battles in and around Mogadishu and other locations, while rival clans with varying allegiances also struggle with al Shabbab fighters on multiple fronts around the region. Lawlessness and the gargantuan proliferation of small arms would make south-central an insecure prospect even without an ongoing civil war. Last I checked, the pirates who operate along Somalia’s coastline weren’t taking instructions from al Shabbab Central (admittedly they are mostly gathered further north now, in Puntland, but seriously, can anybody say “Open Season”?). Aid agencies who have had to pull out of existing programs (at al Shabbab’s instruction) may have left behind resentful community members or former staff in a culture where disagreements are often settled with firearms.

Finally, the statement- which was vague at best- comes at a time when al Shabbab continue to face uncertainty. Their territorial hold is weakening and they are increasingly being targeted by western intelligence, including drone strikes. The recent killing of Fazul Abdullah Mohammed at a security checkpoint in Mogadishu robbed them of a senior commander, in an organization that is rife with internal power-struggles. The authority behind the statement may be in question, and if, in the midst of a power struggle, different voices take control of the leadership, what will this mean for aid agencies who have returned to the field?

In short- the statement from al Shabbab does not guarantee that aid workers are going to be safe from indocrinated and hard-core al Shabbab fighters and commanders at the field level, never mind the host of other security risks that are on offer.

Logistics

Logistics is a bit of a no-brainer. Somalia’s a remote, hostile environment where 20 years of civil war has been systematically destroying any real effort at building a local infrastructure. A network of airfields and roads (mostly unsurfaced) exists, but there are challenges which need to be overcome. Sourcing goods and supplies is hard when everything has to be flown in from outside (and recall that piracy makes shipping difficult), and agencies will have to staff their operations, many from scratch. This slows down any response, even if agencies are willing to step in.

For more discussion in a different context on some of the factors relating to why aid gets bogged down (some of which apply here), see this post on aid arriving in Haiti from last year.

Politics

Al Shabbab isn’t very popular. The TFG doesn’t like it. AMISOM is fighting a war with it. The CIA keeps bombing it. Most thinking people with a moderate worldview villify it. And now, with a famine in their back yard, most local Somalis are pretty unhappy with the way they run things too.

Tens of thousands are on the move. Thousands of kids are dying. Al Shabbab is losing support. And the outflux of population robs it of a source of new fighters for its cause. Not to mention a resource base on which its fighters draw to survive themselves.

Letting aid workers in solves many problems for al Shabbab. It demonstrates to its own people that it’s taking steps to solve the problem. It helps slow the outflux of refugees. It brings in resources that bolster the population- which may be appropriated by fighters at times, or the effects may be indirect, such as more money in the economy that supports fighters’ families which in turn supports them. And, if aid agencies don’t do the right thing by al Shabbab, it gives them fresh ammunition in the polarizing of its people against the west.

Finally, al Shabbab is being targeted by US drones. The presence of aid workers acts as a human shield. Suddenly, pickups and four-by-fours with aerials racing through al Shabbab territory may not certify a senior commander in his wagon, but perhaps a bunch of USAID consultants on their way to a project site. Ooops.

Resources

An aid operation requires resources- money, vehicles, property, supplies. These come from donors. Unfortunately, most western aid donors have very strong restrictions around dealing with terror-aligned organizations (of which al Shabbab is widely recognized as one). However operating in al Shabbab territory, it is impossible not to engage with al Shabbab, almost impossible to guarantee you haven’t inadvertantly hired an al Shabbab operative, and difficult to ascertain that some of your support doesn’t trickle down into al Shabbab’s hands. With no exemptions from western governments for aid agencies operating in these highly complex circumstances, agencies put themselves at risk of losing donor support, or at worst, criminal prosecution at the hands of donor governments, by operating in these areas.

Many aid agencies operated in south-central Somalia and were ejected by al Shabbab. Some of these did so quickly, at a metaphorical (and sometimes not-so-metaphorical) gunpoint, and in doing so, left behind not just staff and community trust, but also physical assets- cars, computers, generators, compounds. This resulted in a large financial loss to the organizations- resources that had been hard to come by in the first place, given low donor interest in Somalia. Should aid agencies begin operating again in al Shabbab territory without expecting some form of recompense for the loss of their assets? Or do they just ignore the loss of those assets, and let al Shabbab have their way, in the name of helping people? While in principle it may be easy to say that helping people is more important than getting your pound of flesh back, the reality is that agencies have been ill-able to afford the loss in the past, and now investing further in new assets and compounds to replace those lost in evacuation is coming at a cost of resources that might have gone into communities instead.

And what’s to stop al Shabbab doing it all again six months from now and seizing all those shiny new Land Cruisers? And what will donor governments say when they see their logos on the side of technicals being used to ambush AMISOM troops?

The Humanitarian Imperative

All this is very well, but of course, people- and particularly, children- are dying. And these are people who may not support al Shabbab, and certainly didn’t vote for them. Is it fair to let our organizational retisence, our principles of non-politicization, or even some fear that one or two staff members might run over a stray landmine, stop us from rushing in to Somalia to help those who need our help most?

I’m not going to give an answer. The concerns are real. The potential harm from entering this context exists- albeit, at the moment, in some analytical future. The potential harm from not entering the context also exists- and it’s real, and in our faces. But for many years now, the aid community has had to contend not just with growing security risks, but also a growing appreciation for the complexity of their operating environment and the very real need to Do No Harm. Agencies taking a bit of time to assess as best they can the potential risks should be leant some grace, just as those who rush in to begin operations without thought for potential ramifications need to ensure they’ve done their due diligence.

I hope- I sincerely hope- that as many agencies as possible and as much assistance as possible will pour into south-central Somalia. As long as the factors remain as they are, though, this will be an exceptionally challenging operation, with high risk of negative ramifications for even the most thoughtful or well-meaning response agency.

Back in the Headlines: Niger

I spent a year living in Niger from mid-2005, courtesy of a media-labelled ‘famine’ that put about a third of the county’s population at risk of acute food shortages, and during which time tens, possibly hundreds of thousands of children died. From time to time I run into former Nigerien colleagues, and they always tell me, ‘you must come and visit us again’. Of course, they don’t really mean it. Given my role in emergency response, the only time I visit a country is when it’s in a really, really bad way. Nobody wants that.

The title of this post is, unfortunately, a total misnomer. Niger isn’t in the headlines. It’s barely ever been in the headlines. It got a couple of weeks of coverage in mid-2005, courtesy of a BBC camera crew who visited an MSF feeding centre in the east of the country and snapped some shots of a few skeletal children, thus propelling the story of a famine into the headlines. It also made a blip a couple of months ago when a low-level military coup deplaced Mahmoud Tanja as President of the country, all in the name of a more streamlined democratic process. Maybe 2 days’ worth.

Most people outside France confuse the country with Nigeria, can’t prononce its name, and wouldn’t know the proper noun for its inhabitants (Nigerien, versus Nigerian). I remember doing media interviews with Australian press when I was in the field. Standing on some street corner with a Thuriya Satellite telephone against one ear, the conversations always started the same way: “We’re joined now by an aid worker in Niger. Tell us, where exactly is Niger?”

Niger is facing another food crisis. At this point in time, failed rains have precipitated a state whereby 7.8 million people, more than half the population of the country, are facing food shortages. The government and aid agencies in Niger have all sounded the alert, far earlier than in 2005 (when it wasn’t until mid-year, as the country approached the height of the traditional ‘hardship season’ that the media, and by inference the world, finally started to pay the emergency any attention), and the implications are that 2010 will be a worse year for Niger than 2005 was.

Of course, nobody outside NGO circles is talking about Niger at all.

It Just Ain’t Sexy

There are all sorts of reasons why countries like Niger don’t get press coverage, fitting neatly into the category we in the industry refer to as ‘forgotten emergencies’. That Niger is a geographically obscure former French colony doesn’t help. But beyond that, there’s the dynamic of the emergency itself. Complex.

The media labelled the 2005 crisis as a ‘famine’. The word ‘famine’ makes for a great headline. It has an emotional hit with it. We get images in our head like Ken Carter’s infamous pullitzer-prize winning image of a vulture stalking an emaciated toddler in Sudan. We think of Ethiopia in 1984 and Band Aid; of the Biafra famine and airlift of the late sixties; of the great famines of the Victorian period in India which cost millions and millions of lives.

What happened in Niger, of course, was not a famine. Which was a double-edged sword. On the one hand, no country wants a genuine famine. On the other, it meant that as soon as people started to delve into the root causes of what was happening in Niger, they lost interest. It was too complex to stay on the front pages. Not sexy enough.

It’s the old challenge we’ve faced for years in the aid industry. Natural disasters are fast, shocking and simple to explain. From a media perspective, they are attractive. People eat them up. Disasters like the Haiti earthquake, or the 2004 Boxing Day Tsunami, jolt themselves into the public conciousness and hold headlines- and attention- for weeks. Sympathy- and cash- flows.

By contrast, complex emergencies such as famines, wars, refugee crises and political emergencies are slow-moving, complex, and distinctly lacking in hope. They take far too long to explain to an audience used to the sort of oversaturated ADD-pandering stimulation provided by MTV, Jerry Bruckheimer and Fox News (complete with soundtrack). People lose interest. If they bother to learn even the slightest bit about the crisis, they feel their money will be wasted there. If it’s a war, then anything they give will just get blown up. If it’s a political crisis, then it’ll get eaten by a corrupt system. If a famine, then the children whose lives they save this year will just die in the next hunger season.

There’s more than a grain of truth in this prejudice.

A Beginner’s Guide to Famine

Famine is already a complex proposition. Hunger and starvation are pretty straight forward, but in fact famine is invariably a symphony of contributing elements. It’s food shortages, distribution systems, politics, purchasing power, economics, growing practices, feeding practices, health systems, soil mechanics, climate patterns, and many other things all wrapped up together. Famine deaths are rarely (though occasionally, in acute circumstances) due to actual lack of food, but usually a vicious interplay between nutrient deficiency and disease.

This downward spiral is in itself multipronged and complex- if quite easily explainable if you’re willing to take the time.

We eat food because our body needs certain inputs to maintain healthy life. Energy in the form of sugars, carbohydrates and fats. Building-blocks in the form of proteins. Specific functions supported through the intake of vitamins and minerals- micronutrients. Reduce the intake of any of these things, and the body doesn’t work so well. Reduce them enough over the long-term (chronic malnutrition), and the body doesn’t develop properly- it becomes smaller (stunting) and brain function is reduced. Reduce them enough over the short-term (acute malnutrition), and the body starts to consume itself (wasting), ultimately leading to death if not checked.

In both instances (but particularly situations of acute malnutrition), the lack of essential supplies means that the body is more succeptible to disease. The inbuilt defence mechanisms to fight bacteria and viruses are weaker. At the same time, many diseases also inhibit the correct absorbtion of different nutrients- resulting in a downward spiral, where poor nutrient intake results in disease, which in turn slows nutrient intake. The alternative cycle is equally true where certain diseases (such as malaria, or diarrhoeal diseases) are endemic in a population- disease inhibiting nutrient intake, leading to higher succeptibility to disease.

In both cases, high mortality results. Usually among the most vulnerable members of a population- young children.

There are additional complicating factors. The biggest is hygeine, which contributes to the prevelance and spread of diarrhoeal disease. This in turn is driven both by mechanical factors (is there a sufficient supply of clean water for drinking, washing and cooking?) and behavioural factors (do people wash their hands after going to the toilet and before handling food? Do they boil water?).

A nation’s public health system is the next tier. Is there a network of hospitals, clinics, doctors and nurses to support a population and treat illness? Are there campaigns to reduce endemic and epidemic diseases (such as vaccinations, or mosquito net distributions)? Are there public health messages reaching remote communities to reduce risky behaviour?

Yet another driver that contributes to mortality cycles is population displacement- and particularly, relief camps. Cramming large numbers of people together puts huge stress on food and water production and distribution systems, and existing health care systems. People quickly become under-nourished. Hygeine systems and fecal waste management become difficult. The physical proximity of people to one another vastly accelerate disease transmission rates. The chances of an outbreak of diarrhoeal or viral disease increases by orders of magnitude, and the rapidity with which it can take hold can have catastrophic impacts on existing support networks, and ultimately on mortality.  In the aftermath of the 1994 Rwanda genocide, tens of thousands of ethnic Hutus died in a matter of weeks after diarrhoeal disease ravished displacement camps on the Congolese border.

In short, camps kill.

Malnutrition

The term famine, in the international public health context, relates to a state of excess mortality driven by food shortages- both acute and chronic- across an entire population. In other words, if we call it a famine, we should be expecting to see a rise in the number of people dying in multiple age cohorts, attributable directly to these physiological effects of limited food intake.

In Niger, this was not the case. In fact, during the 2005 hunger season, there wasn’t a single case of a recorded adult death directly attributed to food shortage. The mortality and morbidity was almost exclusively confined to the cohort of children and infants under the age of 5. A nutrition crisis, certainly, but not a famine.

Is this just semantics? Famine, nutrition crisis, surely it’s all pretty much the same thing. People need food, right?

Well, no, actually not right.

Famine, as we’ve already discussed, is a highly emotive word with which we immediately attach baggage. Drought, crop failure, rake-thin Africans and starving babies. People need food, and need it fast. We think famine, we think problem. We think solution, and we think food distribution. Trucks and airplanes loaded with sacks of grain, long queues of colourfully-clad black women with plastic bowls beneath a World Food Program logo. Donors expect it. And, sadly, aid agencies often jump to it as well.

But we’ve already talked about what famine is. It’s so much more complex than this. If we use simple, loaded language to describe the problem, we run the risk of failing to pause and fully understand it. We’ll be easily pressured into jumping into a knee-jerk response. We won’t tackle the problem where it needs to be tackled. And people- children- will die.

Complexities of the Context

Over the last couple of decades, Niger has been consistently ranked at the very bottom of the UNDP’s Human Development Index- somewhere among the poorest three countries in the world, as a rule. This is more than simple economics. It relates, yes, to the fact that the nation produces virtually nothing for the export market except a few crumbly chunks of Yellow-Cake Uranium, but also to the low adult literacy rate, the extremely high birth rate, or the catastrophic infant mortality rate.

Niger exists on the border between Sahel and Sahara- the former being that vast semi-arid band of mixed grass and woodland that stretches from east to west across the African continent and marking the gradual transition from the true-desert of the enormous Sahara to the moist tropical jungles that seethe around the Congo River. The Sahel is characterized by short, intermittent and unpredictable rains, high temperatures, and a current trend towards increasing aridity and desertification. A third of Niger- the southern region- is Sahel. The other two thirds are desert. The vast majority of the country’s population of 15 million live in this southern band, and it is here that the nation attempts to provide enough food to feed itself. 82% of the population are involved in agricultural or livestock production, much of it subsistence. Just 15% of the land area is actually arable.

Niger’s staple is millet, supplemented by sorghum, and small quantities of market vegetables. Millet is a hardy crop which grows well in drought conditions, but which is low in nutrients and hard to digest, particularly by children, and by people who are unwell. It is generally ground into powder and turned into a paste or porridge- something which takes a lot of physical work and energy. Children are typically fed millet from an early age- the traditional weaning age is two, disregarding the health status of the child or the potential benefits of remaining on breast-milk.

Adult males in the family are likely to be fed before children, as they are economically productive and need to be kept healthy to continue bringing resources into the family. Superstitious beliefs in many parts mean that children are not fed eggs (there is a fear that they will grow up to be thieves)- the best and most easily accessible form of protein in most villages. Strong conservative and male-centric values mean that men take the largest and tastiest portions of food, and children and women are fed only after men are satisfied. (There were many reports during our feeding programs of men taking the nutrient paste we had provided to infants and eating it themselves because they liked the sweet taste).

A large portion of the country’s agriculture is subsistence, with any surplus production usually sold on local markets for cash income. Families are large- Niger has a fertility rate of 7.1 children per woman, and it’s common for men to have more than one wife. Water in this arid country is in short supply- 3- 600mm per year, or around a quarter of that of continental Europe. Resource production is spread thin.

In rural areas, all kinds of traditions prevail in child-care. Generations of high infant mortality has resulted in a certain detachment by mothers towards newborn children. In places, mothers will not care for children until they are weaned (when it’s clear that they are not going to die as babies) and the task falls to other women. Colostrum- the thick, nutrient-rich substance that womens’ breasts produce during the first few days following childbirth and which provide newborns with a huge kick-start for life- is considered unclean, and infants are fed water until the mother’s milk becomes ‘normal’. This is a double-whammy, as it means that not only are children denied that boost they need to start life off, but they are often given unclean water, which makes them sick straight off the bat. Assuming they survive (almost 80 in every 1,000 children born in Niger die before they reach the age of 1), they start life off sick, and poorly able to absorb what nutrients come their way, paving the way for high vulnerability to malnutrition.

Roll all of this together, and nearly 170 out of every 1,000 children born in Niger die before they reach the age of five. That’s almost 17%, or more than 1 in 6. Given that the average woman gives birth to 7 children, that means that on average, every woman in Niger will lose at least one child.

In perspective, the infant mortality rate in Australia is 5 per 1,000 live births. The under-5 mortality rate is 6 (in other words, just one out of every 1,000 children born in Australia will die between the ages of one and five, compared to 90 in Niger).

I hope you’re getting the picture.

All this context mumbo-jumbo (that most readers have probably stopped perousing by now) really means that Niger’s population- and specifically, it’s children, are in any given year extremely vulnerable to anything that might reduce their food intake. If, in a normal year, these are the background statistics, and this is the difficulty people have in simply not dying, it means that when the resources available go down, large numbers of people are very rapidly pushed into a place where they will be at risk of death. Which is how, this year, 7.8 million Nigeriens now find themselves at risk of ‘starvation’.

The crisis, as we can see, is not so much an immediate, short-term issue, but rather it’s couched in this long-term situation.

Anatomy of a Crisis

Short-term factors still play a part however, layered into all this complexity. In 2005, the causes were manifold. First off, there were the combination of failed rains across the southern part of the country in the 2004/5 growing season, and a locust invasion which finished off the rest of the crops. So, acute food production shortages.

Merchants with significant purchasing power- many from Nigeria- foresaw that there would be a food shortage, and as soon as the harvests came in, they bought as much as they could from farmers. Many farmers even mortgaged off their coming season’s harvest before it was in- pushing themselves into debt and annihilating their own production and purchasing power to cover short-term needs. Many men left the land and moved to urban areas or out of the country to find waged labour.

As the year progressed and demand for food on the market spiked, it was trickled back onto the market by merchants who were hoarding it- but at hugely increased prices- a simple supply/demand effect. The merchants made a killing. Literally.

This layering of natural and man-made factors pushed a chronically food-insecure context into a critical emergency. Food shortages across the country meant that households simply didn’t have enough to eat. Children- already chronically underfed with low physical tolerance or resistance to nutrient deficiency and disease, bore the brunt of this. They started to waste away by the hundreds of thousands. Many died.

The politics of a male-dominated conservative society compounded things. It was commonplace for men to leave food and seeds locked away in their storehouses. They would take the key with them and forbid the women from touching the food supplies. They would be gone for months at a time without being in contact. We heard of many instances where women refused to take their dying child to a nutrition centre or hospital, because to leave the village they needed their husband’s permission, and he was travelling looking for work.

Into this mix came a government fearful of the implications of an emergency on its population. The last time there had been a major food emergency in the country the government had collapsed as an indirect result. Frightened the same might happen, they became aggressively defensive. Journalists who threw about the word ‘famine’ were kicked out of the country, accused of embarrassing the government which supposedly had everything under control. NGOs had to tiptoe around government sensitivities. Authorities were slow to admit anything was wrong, reluctant to ask for international assistance.

NGOs sent in their emergency teams, loaded with the ‘F’ word and all the professional expectations that carries. Fundraising campaigns were run, small amounts of money raised. We ran food distributions and set up feeding centres. Tens of thousands of metric tons of food aid flowed into the country. Tens of thousands of families received food. Tens of thousands of children were admitted to nutrition programs.

We undoubtedly saved lives.

We undoubtedly failed to prevent some deaths.

Lessons Learned?

Aid reached Niger too little, too late. NGOs rushed in expecting to find an acute famine based on food shortages (failed rains and locusts) but failed to understand the broader context for several months- everything from cultural practices to the ecnomics of supply and demand to a fragile and defensive state structure. While bits and pieces of the long-term situation in Niger certainly began filtering through in the early days, the complexity of setting up a time-critical emergency response and all the operational demands that such a program demands meant that precious little time was dedicated to reflection and understanding. Spurned on by the emotional sense of urgency, key clues were missed.

It took months to re-orient the response to focus on the structural issues. Food distributions- particularly the network of nutrition centres for young children- certainly kept many alive while the process was reshaped. Had the government been more proactive and had the international community (including donors and the international media) pulled their act together in a more timely fashion, that band-aid measure could have prevented far more deaths, and allowed that re-orientation to take place earlier in the journey. As it happened, by the time the context had been analysed and fully understood, donor and media interest had moved on, and there was little additional funding to run essential programs.

But dealing with these big-picture changes is not easy. How does an NGO change the child-care or hygeine practices of a nation? How do they influence government expenditure on health-care networks or vaccination programs? How do they transform the agrarian sector of an entire economy?

The fact is, they can’t. They can tackle the practical issues on a local (village) level. They can advocate to regional and national government officials. But the potential for this big-picture, long-term impact is limited. And sadly, small, short-term changes in a locale which is couched in a much bigger and more complex context tend to be easily undermined.

The Now and the Not Yet

Niger is again on the brink of a food emergency. It remains a severely impoverished country with political upheaval, and a long-standing set of cultural practices, beliefs and dynamics that are unlikely to have changed much over the past 5 years. Programs have been running to tackle chronic malnutrition and food insecurity, but I can’t comment on their efficacy. To the best of my knowledge, millions of children have once again been placed at risk of acute malnutrition, and by all accounts, the lead-in to the current crisis is worse than the lead-in we saw in 2004/5.

Once again, there is no media interest. Once again the year ticks on, and NGOs and the UN have all put out their early-warning reports, and nobody seems to care. Once again, other emergencies overshadow the crisis in Niger- such as the earthquakes in Haiti, Chile and China.

Niger’s hunger season traditionally runs from May to September. That is, the period after the seeds have been planted in the ground and last year’s harvest has been mostly consumed, but before the next harvest is brought in. Every year, rural Nigeriens have to struggle to find a way to keep food on the table- either ration their own dwindling supplies, cut back on the number of meals a day, scrounge for bush fodder, or look for waged labour in urban areas. The longer the hunger period, the harder it is to make these coping mechanisms meet the needs of families. It’s April, and we’ve been seeing signs of food stress for months. The hunger season has already been underway for some time.

If the world intervenes now, lives will be spared. If the media can raise public awareness, and governments and individuals give money and resources to respond to those needs, and NGOs can mobilize response programs early enough, fewer children need to die there this year.

If, as generally happens, we wait to see photographs of emaciated children in feeding centres on BBC and CNN, then lives will have already been lost. The time it takes to ramp up response programs will cost even more lives. This is the practical reality of the aid sector.

The government, at least, appears to be picking up on the mistakes of the past, and is already sounding alarm-bells at its level, accepting that there is a problem. NGOs too have been engaged since early 2006 with the structural issues in-country and are far more aware of the context than they were in 2005. Programs would be run differently. Best practice in the management of child malnutrition has come a long way even over the last 5 years. The UN and interagency partnerships are far better established than they were before, and long-term nutritional programs aimed at structural issues have been running. You can read more about how 2010 differs from 2005 in this analysis by IRIN here. But resource needs remain, without which programs can’t be run.

Sitting as I do in an aid and development charity, knowing full well that we can’t create resources out of thin air, I’m frustrated to know what to do. I have no power over what stories the media runs. I can’t swing government policy. I don’t have the ability to tell the Australian public where to give their [generously donated] funding. All I have is the memory of the faces I saw when I was there five years ago. The barren landscape and the fields dotted with sorry-looking stalks of millet. Skinny children with piano-key ribcages and oversized round skulls. Fierce heat. Looking at the statistics sheets on our feeding centres: The number of new children admitted; the number of those recovered; the number of defaulters; the number of dead.

I’m unlikely to be the guy on the ground this time round. My role doesn’t have me travelling quite so much at the moment, and that’s not likely to change into the near future. I have mixed feelings about this. I don’t particularly want to get embroiled in what is a complex, slow-moving and at times seemingly hopeless context like Niger’s. On the other hand, you don’t get involved with a country in a situation like that without leaving a bit of your soul there, and taking a little of its soul with you.

I sincerely and with all my heart hope that people can get their act together and choose to do something to prevent people dying needlessly in Niger this year.

Photos:

1. Niger River at Sunset: The sun sets over the Niger River as viewed from the Grand Hotel in central Niamey.

2. Feeding Centre Mother and Child: A woman and her malnourished child await registration at an NGO-run feeding centre in central Niger.

3. New Admission: A malnourished infant awaits registration at an NGO-run feeding centre in central Niger.

4. Maria: 2-year old Maria exhibits signs of acute malnutrition. NGO staff talking with her mother try and convince her to take her daughter to hospital.

5. Food Queue: Women queue at an NGO-run food distribution in rural Niger.

6. Warehouse: An NGO warehouse stacked with WFP food aid in rural Niger.

7. Millet Stalks: Staple crop of Niger.

8. La Nutrition: An NGO staff member registers an acutely malnourished child into a feeding program.

9. Recovery: A child who has been in an NGO-run feeding program for some time exhibits signs of improvement.

10: Split Peas and Mais: At an NGO-run food distribution, a man demonstrates the food being distributed.

11: Traditional Coping Mechanisms: An elderly woman sells a plate of baked leaves which she has foraged from the bush as a food source.

12: Hilltop Sunset: The sun goes down over the hills beyond the Niger River near Niamey.

Wat-er Mess (or, Why Society is Once Again Seriously Screwed)

I’ve always been a bit of an environmentalist. From a very early age I’ve had a thing for the rain-forests, and later, a desire to be environmentally concious and relevant. I guess going through grade school in the 1980s meant that I imprinted a whole lot of those social awareness messages- especially growing up in Geneva and surrounded by the UN and other international organizations. At university I studied environmental issues in depth at both undergraduate and postgraduate degree levels- right down to examining journal articles analysing ice-core samples, pollen records and isotopes found in the shells of prehistoric crustaceans. So when ‘An Inconvenient Truth’ was released to much global chatter ten years later, I didn’t learn anything I hadn’t already concluded from the research I’d dissected years earlier.

That said, being convinced of the need for humans to be environmentally courteous, it’s still a challenge to know how to do this. Trade-offs abound. Hidden costs are everywhere. I recycle. In the past I have tried to exist without much use of a car (though living in the sprawling suburbs of a city with a rotten public transportation network- Melbourne- this has proved extremely impractical now). But I’m also aware that for my job I travel vast distances by airplane, and this probably puts me into the more pollutant-contributing members of our species- a fact I try to justify through what I do, but the fact remains.

Water is a huge issue. It ranks as the second most essential ingredient for human life to continue, after oxygen. It is an extremely limited commodity which is being depleted globally, and the worldwide distribution of which is being negatively impacted by changing climate patterns. It has long been predicted that future conflicts will be driven by the struggle for control over clean water resources.

The state of Victoria, where I live, has been struggling with drought for over a decade now. In this interactive graph provided by Melbourne Water, you can see how water levels in dams and catchments have fallen from the period 1997-99 (top 3 lines) to the period since 2007 (bottom 3 lines). We are in city-wide water restrictions at Stage 3, which restrict activities such as watering gardens, using hosepipes, washing cars and filling pools (watering gardens, for example, can only be done twice a week on designated days, using a watering can; cars cannot be washed, except for spot-washing of windows and mirrors where visibility is being affected, using a bucket and sponge).

I have always tried to do my bit. Campaigns call for 4-minute showers, and as a guy I don’t find this hard to comply with. I find I can’t take a shower now- anywhere- without mentally keeping a check on how long the water is running for. I see the value in water and I do want to conserve it.

My struggle has been wondering how much difference this sort of choice makes. I have always been sceptical. For example, it’s all very well if I restrict my water usage, or even if all households in Melbourne restrict their usage and cut back, but what sort of a difference do we make when there’s no evident transparency around the amount of water going into, say, agricultural irrigation schemes, or industrial production. In my mind, it was quite possible that 80% of the available water was going into these other things, so unless work was being done to curb water use in other economic activities (which, of course, I could see as being highly unlikely politically due to desires to maintain economic throughflow) then my efforts might very well be the proverbial drop in a bucket.

I did see a statistic at one point that suggested that household water usage accounted for about 50% of state-wide water consumption, against agricultural and industrial production. This made me feel a little better. I could see the value then in making some personal sacrifices. After all, every litre saved is a litre in itself and has value. Having lived and travelled extensively in the third world, having watched people queue for eight hours to fill up their buckets, or women and girls spend hours each day gathering water to survive, I understand how precious each of those litres are. Heck, I’ve done my time washing out of buckets on a couple of litres a day. I get it.

But at the back of my mind has always been the hidden environmental costs that go into every facet of daily life. It crops up in a variety of ways. For example, when you buy a product that’s come from overseas, it’s been transported at an environmental cost. Has it come by plane? By sea? What about the various components that went into it- did they also travel to a point of manufacture? And the packaging? Without a detailed environmental audit of every product (someday I hope to see this on packaging much like we take nutritional information for granted today), it’s impossible to tell.

Good examples of this are organic foods. Touted as better for the planet, in fact this isn’t strictly true. Yes, they reduce the amounts of chemicals we’re pumping back into the soil. But in fact, the earth doesn’t have enough fertile land area to be able to produce enough food using strictly organic techniques to be able to feed our burgeoning population. If we converted all available land to grow organic foods and stopped polluting with chemical fertilizers, pesticides and other agents, tens of millions of people (and more) would rapidly starve to death- because in fact those pesky chemical fertilizers do vastly increase the yield of food per hectare that we can produce.  Trade-offs.

Another example is ethanol fuel. It’s plugged as an environmentally friendly alternative to gasoline, and is mixed in with regular gas as the ‘green’ option on the forecourts. However the processes behind ethanol production involve vast amounts of land area converted to sugar-cane. Demand for ethanol is accelerating the destruction (by fire) of the Amazon rainforest in Brazil and the commercial exploitation of the residual infertile land for sugar-cane farming is devastating the soil quality, resulting ultimately in unsustainable practices, poverty traps for small farmers, and desertification. It is, in the long term, horrible for the environment, and I’ve stopped putting ethanol into my tank as a result (although the whole thing is a trade-off; which environmental cost is higher per litre of fuel- burning down rainforest and desertification, or pumping out higher levels of carbon fumes from my exhaust? It’s not easy to find out).

I was both fascinated and chilled to read a story last week on the BBC website about water use in Britain and how water use in developed countries was creating shortages in the developing world (not the story itself; that’s old news. But the details within it). They had taken just one resource- water- and applied exactly the above thinking to it: What is the hidden cost behind the products we take for granted? They call it “embedded” water usage- namely, how much water goes into producing said item- watering the crops that are the raw material, washing goods ready for commercial availability, involved in chemical processes, etc. There is an awesome interactive graph (yes, I like these things), and it displays per unit, and per kilo of product.

An example. A single sheet of paper takes 10 litres of water resources to produce, while a kilo of paper, around 2,000 litres (think about that the next time you by a ream of paper for your printer at home). For reference a bathtub takes on average 150 litres to completely fill. Melbourne’s household water target per person per day is 155 litres (and water statements here now come with little graphs showing how close your household water usage has been over the past quarter to that target).

Another example. A loaf of bread takes about 440 litres. Per kilo, bread requires about 1,000 litres.

Or take a cup of coffee. To make a single cup of coffee, 140 litres is required. Think about how little actual coffee goes into a mug- just a few dark grains at the bottom of the cup (or jammed into the espresso machine). To make a kilogram of coffee- get this- the report says it takes 21,000 litres. 21,000!!! When you see those lovely-looking 10kg hessian sacks of smooth polished coffee beans sitting by the counter at your local Java-juice dispenser to add a little ambience and authenticity, consider the fact that it took 210,000 litres of precious water just to produce that one sack. In perspective, that’s about what a thoughtful household in a western country might use in a year. It’s also the volume of a moderate sized swimming pool. 10kgs. It’s crazy.

Here’s one more. Jeans. This one freaked me out. To make a single pair of jeans- get this- it takes 10,500 litres. For one pair! This kills me! I never want to buy a pair of jeans ever again! And I like jeans! I have a good buddy who works for Levi’s here in Australia! But I can’t get over this number. It’s mind-blowing stuff.

Society is seriously screwed.

Anyways, that’s my rant for the day. Hopefully not too much doom-and-gloom in there. But at the same time, hopefully something to think about the next time you buy something.

And in all seriousness, I can’t wait for the day that all our commercial products have environmental information printed on them, just like today we can read the nutritional information. If we want to keep not just our bodies but our society and our world healthy, I think this is absolutely critical.

Shalom, Salaam, Peace.

Photos:

1. Fill: A Haitian man fills a water container from an NGO-installed water-point on the island of Gonave, off the coast of Port-au-Prince.

2. Industry: Steam billows from an industrial smokestack in western Melbourne.

3. Stain: Saline water stained brown flows out into the sea in northern New Zealand.

4. Outback: Australia’s outback landscapes support it’s moniker as “The Dry Continent”- the most arid landmass on the planet.

5. Stage III: Hosepipe bans and garden watering restrictions are hallmarks of Melbourne’s Stage III water restrictions.

6. Gathering Water: Haitian women and children gather at an NGO-installed water point to collect water.

7. Shade: A boy shelters from the burning midday sun in the Sahelian drylands of southern Niger during the 2005 famine.

8. Therapeutic Feeding Centre: An infant waits to be registered at an NGO-run therapeutic feeding centre for severely malnourished children during the 2005 famine in Niger.

9. Stream: Steam blows from industrial smokestacks, western Melbourne.

10. Pouring Water: A Nigerien girl fills clay jars of water from a deep well.  Girls and women in Sahelian Africa spend many hours of each day gathering water for their households- first hauling the heavy liquid up from wells and bores, then transfering it to pots which they then carry back to their homes one by one. 

To see more of my photography please check out my Gallery here.