Iraq: Emergency Working Group Falluja Crisis - Bulletin Update 18 Jan 2005

IOM figures (12 Jan.): Internally Displaced Persons (IDPs) from Fallujah

*Kindly note this figure represents an estimate of the number of families that remained inside Fallujah throughout the conflict and the proportion of returning IDPs that are thought to be actually staying inside the city since districts began gradually re-opening by MNF-I/Iraqi forces. Also, IOM notes a marked decrease of about 9,000 families in the total number of Fallujah IDPs previously accounted for in earlier assessments of sites around the city. It is unclear whether these 'missing' IDPs have settled in their current places of displacement, returned to Fallujah, or moved to secondary areas of displacement.

GENERAL SITUATION:

Fallujah City

Since the end of December 2004, the IIG has encouraged IDPs to return to the city in a phased process whereby selected districts of the city were gradually re-opened as MNF-I/Iraqi forces reportedly cleared areas of UXOs and ensured the neighbourhoods were secure. The IIG has reported that from 14 January onwards, all districts of the city will be open to returnees. A total of five entry checkpoints have been established by the MNF-I to control access into the city by civilians, government officials, contractors, and NGOs, citing concerns about the possible return of insurgents. Those entering must undergo extremely strict inspection and identification procedures, and are subject to curfew after 17:00, thus raising concerns about access and freedom of movement.

Despite reports of up to 85,000 residents having passed through the checkpoints (cumulatively) as of 9 January, it is estimated that only about 3,000-8,000 people are actually remaining overnight inside the city due to the harsh conditions, which include lack of adequate shelter, electricity, water, and other basic necessities such as access to health care and education. Reports indicate that the hospital and two clinics are adequately stocked and functional, however access remains problematic. The line ministries comprising the Fallujah Relief and Reconstruction Taskforce with support from the MNF-I have established three Humanitarian Assistance Centres (HACs) throughout the city to store and distribute relief supplies to returnees. Some families, estimated at 100 per day, have reportedly begun to collect their PDS rations and other non-food items (NFIs) from these distribution centres.

Overall, NGOs report that lack of access and security continues to affect their ability to independently assess conditions inside the city and to directly deliver humanitarian aid to the returning population.

Surrounding IDP Areas

Insecurity and sporadic access due to roadblocks by MNF and insurgent groups also continue to impact the provision of humanitarian assistance to IDPs at their current places of displacement. Joint IOM/UNHCR distributions in the area of Amiriya were recently suspended due to risks associated with criminal activity. NGO monitors report that many IDPs have still not received their PDS rations. WFP focal points report that between 30% to 40% of IDP families have re-registered with the Ministry of Trade to collect their food rations at new locations based on information received from assessed areas of Anbar, Baghdad, Kerbala, and Salah el Din.

The relatively small proportion of IDPs returning to settle back inside Fallujah suggests that a medium-term 'care and maintenance' assistance will be required to meet the needs of those displaced in their current locations. The MoH reports that some health services in the IDP areas have been overloaded, for instance consultations in the Saklawiyah clinic average between 600-800 patients per day, with high incidences of respiratory infections, watery diarrhoea, and scabies reported due to overcrowded living conditions and poor sanitation. Concerns have also been raised about the lack of education for displaced children. Moreover, it has been suggested that public information campaigns by the IIG be better communicated to IDPs to inform them of how to access their PDS rations, update them on the returns process, and outline the assistance to which they are entitled at their current locations.

RETURN:

Unconfirmed reports suggest that significant fighting continues inside Fallujah. DfID advisors to the IIG estimate that 40% of buildings and homes have been "significantly damaged", 20% have sustained "major damage", and the remainder are "completely destroyed". UNHCR reports that relief items are not reaching all of those returning to Fallujah, with estimates of only 40% in well-serviced areas of the city receiving assistance.

The EWG has raised concerns about the conditions imposed on IDPs wishing to return to Fallujah, including curfews, restrictions on movement, and intensive ID and search systems. All males of military age are reportedly issued biometric ID cards consisting of iris scan and fingerprint details. Unconfirmed reports indicate that civilians are being denied access at checkpoints due to insufficient identification and that some are being detained, all of which further contribute to lengthy and slow queues to enter the city. The documents required for entry by civilians must include at least two of the following three: National ID card, food ration card, or nationality certificate. Some of these measures contradict commonly accepted principles for UN supported programmes worldwide which promote returns in safety and dignity.

The MNF-I are directly managing and distributing supplies from two of the HACs inside Fallujah; whereas management of the third HAC in the Jolan Park district has been handed over to the Ministry of Trade. All three official distribution points are reportedly guarded by MNF-I soldiers, which further raises concerns about the prominent role of military actors in the return process and the distribution of humanitarian assistance. The UN has made clear that any assistance provided through its channels must be distributed by civilians in adherence with civil-military guidelines.

According to the IIG, the welfare payments of about $100 USD per family have begun to be disbursed to Fallujah IDPs in the surrounding areas upon presentation of valid ID and PDS ration cards; however the UN has not been able to confirm these payments. The housing damage assessments and compensation schemes have yet to be implemented by the IIG. In the meantime, the MNF-I is reportedly distributing hardship payments of $200 USD to each head of household inside Fallujah at the HACs until damage assessments by the IIG can commence.

ASSESSMENTS:

According to an NGO assessment, the presence of mines and UXOs remains a major concern, as reports suggest that homes and public building have not been systematically cleared and demarcated and that public information campaigns have not been effectively disseminated to the returnees.

Joint UNHCR/IOM assessments are ongoing in the areas of displacement through NGO partners to determine the return intentions and protection needs of IDP families. Preliminary results indicate that a significant proportion have purchased property in their current places of displacement, which suggests a long-term strategy of settlement outside of Fallujah. Major reasons reportedly given for their reluctance to return to the city include insecurity, lack of basic services, presence of MNF, and environmental health concerns attributed to the use of heavy munitions and UXOs.

UNICEF notes that an estimated 100,000 children from Fallujah and the surrounding host communities are at risk of losing the entire academic year as a result of schools being occupied, damaged, or overcrowded. None of the 95 schools inside Fallujah are currently open, and only 125 out of 362 schools in the surrounding areas are reported as functioning by the IIG. The Ministry of Education is reportedly considering setting up 11 tented schools in Amiriya with support from NGOs.

Electricity has reportedly been restored to two districts (Al Andalus and Al Bazaara) and the Jolan health clinic inside Fallujah, while officials continue to repair the network.

The IIG reports that water has been restored to two districts inside Fallujah for a few hours per day, but the network requires extensive repairs. Only bottled water was reportedly available in at least one health clinic.

The availability of fuel and kerosene both inside Fallujah and the surrounding IDP areas remains problematic with some reports of shortages.

The IIG reports that the Fallujah General Hospital and 4 health clinics inside the city are currently open and functional; however access remains an issue for both ambulances and health workers, especially during curfew hours. WHO is closely monitoring the health situation and is working with health officials to support the surveillance system for communicable disease outbreaks, especially given the lack of access to safe water, garbage disposal, and hygienic living conditions.

RESPONSES:

Joint IOM/UNHCR distributions of intermediate food rations and non-food items (NFIs) such as blankets, cooking sets, and winter clothing are ongoing for about 26,000 IDP families throughout Anbar governorate and are scheduled to finish by this week. Similar distributions are due to start in Baghdad this week by IOM for about 9,000 Fallujah IDP families displaced throughout the city.

The IIG is currently trucking water to Fallujah and reportedly storing it inside 30 tankers across the city for distribution to returnees.

UNICEF continues to truck 400,000 litres of drinking water on daily basis for about 66,500 people to the IDP locations in Habaniya, Amiriya, Karma, and Saklawiya.

In response to further requests from the IIG, UNHCR has provided an additional 200 tents, 3,000 blankets, 500 heaters, and 500 plastic sheets to the Ministry of Displacement and Migration (MoDM) for distribution to returnees inside Fallujah. UNHCR had previously supplied tents, plastic bags, and heavy-duty plastic sheeting to the MoDM for the return.

An international NGO has provided 6000 jerry-cans, 20,000 blankets, and 10,000 plastic sheets to the MoDM for distribution inside Fallujah.

Joint OCHA/UNAMI administered grants have been disbursed to 3 NGOs for emergency distributions of food items, hygiene kits, and NFIs to about 2500 Fallujah IDPs located in Baghdad and the surrounding IDP areas. These distributions will be closely coordinated with ongoing UNHCR/IOM activities.

ADVOCACY:

UNAMI continues to raise the issue of unimpeded access to Fallujah and the IDP locations for humanitarian actors to conduct independent needs assessments and assistance delivery. The EWG has issued concerns through the SRSG to address specific questions to the IIG regarding the extent of destruction and civilian deaths due to the recent conflict, and the access of IDPs to food rations at their current places of displacement.

COORDINATION:

UNAMI continues to share information with the Fallujah Relief & Reconstruction Taskforce and the Core Coordination Group in an effort to strengthen communication channels between the international humanitarian community and the IIG. In addition to discussions with ministry officials, meetings were also held with advisors from the British Department for International Development (DfID) regarding improved coordination and information exchange with the IIG's newly established crisis management mechanisms.