dzud appeal · 2 3 arkhangai khentii zavkhan bayan-olgii dornod bulgan s e l e n g eselenge...
TRANSCRIPT
-
MONGOLIA
DZUD APPEAL
UN Mongolia Country Team Consolidated Appeal
May 2010
-
!
!!
!
!
!
!
!!
!
!
!!
!
!
!
!!
!
!
!
!
!
! !!
!!
!
!
!
!
!
!
!!
!
!
! !
!
!
!
!!
!
!
!!
!
!!
!!
!
!!
!!
!!
!!
!!
!!
!
!
!
!
!
!
!
!!
!
!
!!
!!
!
!
!
!
!
!
!!
!!
!
!
!
!
!
!!
!
!
!
!!
!
!
!! !
!!
!
!!
!
!!
!!
!!
!
!
!!
!
!!
!!
!!
!!
!!
!!
!
!!
!!
!
!!
!!
!!
!
!!
!!
!
!
!
!!
!
!!
!!
!
!!
!!
!!
!!
!!
!!
!!
!
!!
! !!
!
!!
!
!
!!
!!
!!
!
!
!!
!
!!
!!
!!
!!
!!
!!
! !!
!!
!!
!!
!!
!!
!!
!!
!
!!
!!
!
!!
!
!!
!!
!!
!
!!
!!
!!
!
!!
!!
!
!!
!!
!
!!
!
!!
!
!
!
!
!!
!
!!
!
!
!
!!
!!
!
!
!!
!
!!
!!
!!
!!
!!
!
!
!!
!!
!
!!
!
!
!! !
!
!
!
RU
SS
IAN
FE
DE
RA
TI
ON
CH
INA
MO
NG
OL
IA
MO
NG
OL
IA
UV
S
KH
OV
SGO
L
OM
NO
GO
VI
DO
RN
OG
OV
I
DU
ND
GO
VI
OV
OR
KH
AN
GA
I
BA
YA
NK
HO
NG
OR
GO
VI-
ALT
AI
SUK
HB
AA
TAR
KH
OV
DTO
V
4
1
2
3
AR
KH
AN
GA
I
KH
EN
TII
ZA
VK
HA
N
BA
YA
N-O
LG
II
DO
RN
OD
BU
LG
AN
SEL
EN
GE
SEL
EN
GE
Olo
vyan
naya
Men
toug
ou
Kyzy
l
Tash
tago
l
ay
Irkut
skC
hita
Baot
ou
Dat
ong
Cha
tang
a
Ulia
stai
Man
zhou
liH
aila
r
Alta
nEm
el
Yake
s
Mia
nd
Yerm
akov
skoy
eSh
ushe
nsko
yeAs
kiz
Abaz
a
Tura
n
Shag
onar
Cha
dan
Ak-D
ovur
ak
Khov
u-Ak
sy
Zim
a Zal
ari
Kutu
likC
here
mkh
ovo
Mis
hele
vka
Ust
-ord
ynsk
iyU
soly
e-si
birs
koye
Oye
kAn
gars
k
Shel
ekho
v
Kultu
k Baya
ngol
Babu
shki
n
Ust
-bar
guzi
n
Kaba
nsk
Ono
khoy
Ula
n-U
de
Nov
osel
engi
nsk
Sele
ndum
a
Nau
shki
Kyak
hta
Kary
msk
oye
Khilo
k
Buka
chac
ha
Vers
hino
-Dar
asun
skiy
Sret
ensk K
okuy
Ner
chin
skPe
rvom
aysk
iyBa
ley
Sher
lova
yaG
ora
Borz
ya
Gen
Yetu
li
Jint
aJi
uqua
n
Qita
i
Bark
ol
Yum
enzh
en
Baya
nO
bo
Wuy
uan
Xam
ba
Linh
e
Baya
nG
ol
Qag
anN
ur
Hua
deKa
ngba
o
Bai
ling
Mia
oSh
angd
u
Zhan
gbei
Jini
ngG
uyan
gW
anqu
anZh
angj
iako
u
Don
ghe
Sala
qiFe
ng-z
hen
Tian
zhen
Xilin
hot
Chi
fen
Duo
lun
Xuan
Hua
Shac
heng
Shun
yi
Mor
i
Huh
ehot
U
Alt
hi uheHe
he
Jim
sar
g
LAA
NB
AAT
AR
ULA
AN
BA
ATA
R
BEI
JIN
G
Dar
ygan
ga
Ond
orsh
il
Chu
luun
khor
oot
Chu
luun
khor
oot
Das
hbal
bar G
urva
nzag
al
Mar
dai K
havi
rga
Serg
elen
Turs
hlag
aS
tant
s
Khal
khgo
l
Mat
ad
Erde
nets
agaa
n
Alta
iBa
yang
ovi
Shin
ejin
stBa
yanl
ig
Gur
vant
es
Olz
iit
Bogd
Tsog
t-ovo
oBu
lgan
Man
lai
Khan
khon
gor T
sogt
tset
sySe
vrei
Baya
ndal
aiKh
urm
enKh
anbo
gd
Noy
onBa
yan-
Ovo
oN
omgo
n
Dzr
szn-
usB
r.
Org
onSa
ikha
ndul
aan
Zuun
baya
nEr
dene
Man
dakh
Ula
anba
drak
hZa
myn
-uud
Khov
sgol
Khat
anbu
lag
Dav
stTe
s
Sagi
lTu
rgen
Khan
kh
Tsag
aann
uur
Ula
an-u
ulTs
agaa
n-uu
rKh
atga
l
Erde
nebu
lgan
Tush
igAl
tanb
ulag
Tsag
aann
uur
Ula
ankh
usTs
enge
l
Buya
nt
Alta
i
Zuun
govi
Mal
chin
Bokh
mor
on
Khya
rgas
Tes
Nar
anbu
lag
Khov
d
Ond
orkh
anga
iO
lgii
Song
ino
Zavk
han
Tset
sen-
uul
Urg
amal
Erde
nebu
ren
Tolb
o
Zavk
hanm
anda
l
Man
dal-o
voo
Erde
nekh
airk
han
Del
uun
Dor
voljin
Cha
ndm
any
Man
khan
Khok
hmor
ytZe
reg
Baya
n-uu
l
Jarg
alan
Dar
vi
Mos
tTs
etse
gD
arvi
Tonk
hil
Shar
ga
Bulg
anU
yenc
h
Togr
ogAl
tai
Buga
tTs
eel
Tsar
gin
Arbu
lag
Baya
ntes
Taria
lan
Tsag
aan-
uul
Tset
serle
gIk
h-uu
lAs
gat
Ras
haan
tR
asha
ant
Tude
vtei
Buln
ai
Gal
tIk
h-uu
lKh
airk
han
Erde
nem
anda
lId
erTa
riat
Yaru
uTs
akhi
rO
ndor
-ula
an Bat
tsen
gel
Alda
rkha
anIk
htam
ir
Bulg
anG
urva
nbul
agO
tgon
Jarg
alan
tZa
gTa
ishi
rG
uulin
Erde
nets
ogt
Khur
eem
aral
Bom
bogo
rBu
utsa
gaan
Olz
iitKh
aliu
nBi
ger
Baat
saga
anJi
nst
Tsog
t
Cha
ndm
any
Bogd
Baru
unba
yan-
ulaa
n
Tesh
ig
Khud
er
Buga
ntKh
utag
-ond
orKh
anga
lO
rhko
nBa
yang
ol Man
dal
Saik
han
Olz
iitS
uurin
Born
uur
Baya
ncha
ndm
any
Olz
iit
Lun
Das
hinc
hile
n
Khot
ont
Ras
haan
tR
asha
ant E
rden
esan
t
Baya
n
Burd
Bure
n
Guc
hin-
us
Khuj
irtBa
yant
saga
an
Adaa
tsag
Der
enSa
nt
Erde
neda
lai
Baya
ngol
Togr
ogG
urva
nsai
khan
Saik
han-
ovoo
Khul
d
Baya
ndun
Baya
n-uu
lD
adal
Nor
ovlin
Bind
erTs
agaa
n-ov
ooBa
yan-
Adr
aga
Javk
hlan
t
Bulg
an
Khol
onbu
irBa
yan-
Ovo
o
Berk
hTs
enkh
erm
anda
lTu
men
tsog
t
Baya
njar
gala
nD
elge
rkha
anM
onkh
khaa
n
Baya
nmon
khBu
rent
sogt
Dar
khan
Uul
baya
nAs
gat
I khk
het
Gal
shar
Ikhk
het
Gal
shar
Tuvs
hins
hire
eBo
r-ond
or
Khal
zan
Aira
gD
elge
rekh
Baya
ndel
ger
Alta
nshi
ree
Ong
on
Ula
ango
m
Mör
ön
Bul
gan
Dzu
unm
od
Man
dalg
ovi
Önd
örha
an
S ühb
aata
rSü
hbaa
tar
Ölg
iy
Alta
y
Bay
anho
ngor
Bar
uun
Urt
Cho
ibal
san
Dad
anza
dgad
Arv
aikh
eer
Kho
vd
Sain
shan
d
Erde
net
Chi
orC
hior
Tset
serle
g
Dar
han
Dar
han
Ulia
stai
L.H
öh
Ulg
ain
Gob
i
Lake
Baik
al
Lake
Höv
sgöl
Lake
Uvs
Lake
Hul
un
L.H
arU
sLa
keB
uir
Lake
Hya
rgas
Brat
skR
eser
voir
Lake
Üür
eg
Lake
Ula
nsuh
aiG
uant
ing
Shui
ku
Lake
Tele
tsko
ye
Lake
Nuu
r
Lake
Ach
it
L.D
alai
Lake
Sang
iyn
Dal
ay
Lake
Telm
en
Lake
Gus
inoy
e
Hua
ng
Angara
Ider
Selen
ge
Orh
on
Tuul
Her
len
Chiko
y
Onon
Shilk
a
010
020
030
0
km
1 2 3 4
......
......
......
......
......
....
......
......
......
......
......
......
.Dar
khan
-Uul
Gob
isum
ber
Ork
hon
Ula
anba
atar
Lege
nd
Prov
ince
sof
Mon
golia
Int’l
boun
dary
Pro
vinc
ebo
unda
ry
Nat
iona
lcap
ital
Pro
vinc
ialc
apita
l
Pop
ulat
edpl
ace
200
-400
400
-600
600
-800
800
-1,0
001,
000
-1,5
001,
500
-2,0
002,
000
-2,5
002,
500
-3,0
003,
000
-4,0
004,
000
-5,0
005,
000
and
abov
e
Bel
owse
ale
vel
0-2
00
atio
n(m
eter
s)
er:T
hede
sign
atio
nsem
ploy
edan
dth
epr
esen
tatio
nof
mat
eria
lon
this
map
dono
tim
ply
the
expr
essi
onof
any
opin
ion
wha
tsoe
ver
onth
epa
rtof
the
Secr
etar
iat
ofth
eU
nite
dN
atio
nsco
ncer
ning
the
lega
lsta
tus
ofan
yco
untry
,ter
ritor
y,ci
tyor
area
orof
itsau
thor
ities
,orc
once
rnin
gth
ede
limita
tion
ofits
front
iers
orbo
unda
ries.
Map
data
sour
ces:
CG
IAR
,Uni
ted
Na
icSe
ctio
n,ES
RI,
Euro
paTe
chno
logi
es,G
EBC
O,G
over
nmen
tofM
ongo
lia.
Elev
Disc
laim
tions
Car
togr
aph
MO
NG
OLI
A-R
efer
ence
Map
-
1. EXECUTIVE SUMMARY ................................................................................................................................. 5
2. CONTEXT AND HUMANITARIAN ACHIEVEMENTS TO DATE .................................................................... 7
2.1 CONTEXT ............................................................................................................................................... 7 2.2 RESPONSE TO DATE................................................................................................................................. 8
3. NEEDS ANALYSIS ....................................................................................................................................... 12
3.1 1999-2001 DZUD EXPERIENCES ............................................................................................................. 12 3.2 PRE-EXISTING SITUATION ....................................................................................................................... 13 3.3 SOCIO-ECONOMIC PROFILE AND LOCATION OF AFFECTED POPULATIONS ...................................................... 13 3.4 CURRENT SITUATION.............................................................................................................................. 14 3.5 FUTURE COORDINATION NEEDS ............................................................................................................... 17
4. THE 2010 COMMON HUMANITARIAN ACTION PLAN............................................................................... 18
4.1 SCENARIOS .......................................................................................................................................... 18 4.2 STRATEGIC OBJECTIVES FOR HUMANITARIAN ACTION IN 2010..................................................................... 19 4.3 STRATEGIC MONITORING PLAN ................................................................................................................ 21 4.4 CRITERIA FOR SELECTION AND PRIORITIZATION OF PROJECTS..................................................................... 23 4.5 SECTOR RESPONSE PLANS ..................................................................................................................... 24
4.5.1 SURVIVAL, WASH, HEALTH AND NUTRITION SECTOR ........................................................... 24 4.5.2 AGRICULTURE............................................................................................................................. 30 4.5.3 EARLY RECOVERY...................................................................................................................... 36 4.5.4 EDUCATION.................................................................................................................................. 40
5. ROLES AND RESPONSIBILITIES................................................................................................................ 43
6. CONCLUSION............................................................................................................................................... 44
ANNEX I. LIST OF PROJECTS ......................................................................................................................... 45
TABLE I. SUMMARY OF REQUIREMENTS, COMMITMENTS/CONTRIBUTIONS AND PLEDGES BY CLUSTER.......................... 45 TABLE II. SUMMARY OF REQUIREMENTS, COMMITMENTS/CONTRIBUTIONS ............................................................... 45 AND PLEDGES BY APPEALING ORGANIZATION......................................................................................................... 45 TABLE III. LIST OF PROJECTS GROUPED BY CLUSTER ............................................................................................ 46 TABLE IV. LIST OF COMMITMENTS/CONTRIBUTIONS AND PLEDGES TO PROJECTS NOT LISTED IN THE APPEAL............... 48 TABLE V. SUMMARY OF REQUIREMENTS, COMMITMENTS/CONTRIBUTIONS ............................................................... 50 AND PLEDGES BY IASC STANDARD SECTOR ......................................................................................................... 50
ANNEX II. CONTACT INFORMATION................................................................................................................ 51
ANNEX III. ACRONYMS AND ABBREVIATIONS ............................................................................................... 52
Figure 1. Camel seeking warmth. UNICEF/ 2010/Cullen
Please note that appeals are revised regularly. The latest version of this document is available on http://www.humanitarianappeal.net.
Full project details can be viewed, downloaded and printed from www.reliefweb.int/fts.
iii
http://www.humanitarianappeal.net/http://www.reliefweb.int/fts
-
Figure 2. Soums (villages) are unaccessible. - UNICEF/ 2010/ Cullen
Figure 3. Dzud situation at village level. Source: NEMA update of 13 April 2010
iv
-
1. EXECUTIVE SUMMARY
Mongolia has one of the coldest climates in the world, with temperatures dropping below -20ºC for several months each year. The 2009-10 winter, which has been extremely harsh even by Mongolian standards, has resulted in increased maternal and child mortality, and an unprecedented loss of livestock and the collapse of thousands of people’s livelihoods and many basic services. The disaster is known locally as a dzud which is a complex, long-lasting natural disaster in which a summer drought is followed by heavy snowfalls and unusually low temperatures in winter, and then by a dangerous spring thaw. Fifteen of Mongolia’s 21 provinces, home to 769,106 people (28% of the country’s population), have been declared disaster zones, and another four are seriously affected. An overall lack of resources prompted the Mongolian Government to appeal for assistance from the international community.
Figure 4. For livestock, there was no escape from the snow and cold; over seven million died in four months. UNDP /2010/ Bunchingiv
Although the winter months are over, heavy snowfall and sub-zero temperatures persist in many areas, prolonging and intensifying the suffering for both people and their livestock. The affected population is suffering from a range of factors caused by the dzud, including lack of access to health care, widespread food insecurity, loss of livelihoods, risk of a mass exodus of people from rural areas to the cities in search of alternative employment, and psychological trauma for affected herders and their families. The thick snow cover has also meant that livestock, vital to the lives and livelihoods of a significant proportion of Mongolia’s population, have been unable to graze. Taken together with the summer drought, which prevented the collection of adequate amounts of forage, and with the extreme cold, this has resulted in widespread deaths of animals and in a range of serious consequences for the people who depend on them. By the end of April 2010, more than 7.8 million head of livestock (some 17% of all Mongolia’s livestock) had perished nation-wide. The loss of livestock, as well as a falling livestock birth rate, has had a devastating impact on affected herders and rural communities. The livestock sector provides livelihoods for 30% of Mongolia’s population and represents 16% of the country’s gross domestic product. At present, almost 9,000 households (45,000 people) have been left without animals and face a grim future in the coming months. The multi-faceted concerns raised by the disaster require a greater emphasis on combining humanitarian support, early recovery efforts and medium to longer-term interventions, as well as the formulation of strategies to prevent a recurrence of the situation and to mitigate herders’ vulnerability in the future. The response required for the dzud is qualitatively different from what would normally be needed in other natural disasters. Unlike sudden onset emergencies, the dzud in Mongolia has evolved slowly and has progressively widened its geographical reach, forcing ever-growing numbers of people in rural areas into a battle for basic survival. While the disaster’s foundations were laid in the summer drought, then worsened by the extreme winter, it is in the spring time and into early summer when the worst of the impact will be felt. This Appeal has three strategic objectives: first, to address the most critical humanitarian needs of the vulnerable groups and institutions for the period between May 2010 and April 2011; second, to address the protracted humanitarian and early recovery needs of the affected population by means of livelihood-based humanitarian programming to prevent further or renewed deterioration into a humanitarian emergency; and third, to put in place preparedness, disaster risk-reduction and contingency planning in anticipation of worsening conditions or to deal with other disasters. The Appeal targets two main groups: herders and their families (749,000 individuals) who will remain in rural areas, and those who, for their own survival following the impact of the dzud, are predicted to migrate to peri-urban areas (at least 20,000 people) where they will face employment challenges and have limited access to basic social services. It focuses on limiting further livestock losses, providing
5
-
immediate income-generating opportunities and creating alternative livelihoods. Cutting across all areas, there is a critical need to build capacity, and increase collaboration and coordination with the National Emergency Management Agency (NEMA) and Government ministries, with a Government-owned, sectoral approach aimed at improving disaster preparedness and response plans an ultimate goal of this Appeal. To support the Government, the international humanitarian community, including non-governmental organizations (NGOs) and UN agencies, is seeking a total of $118,150,794 to address the immediate, early recovery, and preparedness needs of 769,106 people affected by the dzud over a planning and budgeting period extending to April 2011. Partners have reported funding to date of $1,375,200 to projects and activities in this Appeal, leaving unmet requirements of $16,775,594. Basic humanitarian and development indicators for Mongolia Population 2.76 million people (NSO, 2009) Surface area 1,564,115.75 km2 Population density (per km2) 2 (UN, 2005) Agricultural land (% of land area) 83.3 (World Bank, 2005) Protected areas 14.4% of the total territory (MNET, 2009) Under-five mortality 41 p/1,000 (UNICEF, 2008)
Life expectancy Women: 69.9 years Men: 63.9 years (UN Data, 2009)
Prevalence of under nourishment in total population 27% (Second National MDG Implementation Report – Government of Mongolia/ UNDP, 2007)
Gross national income per capita $1,649 (NSO, 2008) Percentage of population living on less than $1 per day 35% (NSO, 2008)
Proportion of population without sustainable access to an improved drinking water source 28% (UNDP, HDR 2007)
2009 UNDP Human Development Index (score/rank) 0.727; 115th of 182 (medium human
development)
Also
• The population growth of Mongolia is 1.8% per year (NSO, 2008) • Infant mortality is 20.2 per 1000 live births and maternal mortality ratio is 87.4 per
100,000 live births (MoH/ Health Statistics - 2009) • < 0.1% of the population living with HIV/AIDS (UNAIDS, 2008) • Total Number of livestock: 44 million (as of 31 December 2009 [National Statistics
Office Monthly Bulletin]) including 277,100 camels; 2,221,300 horses; 2,599,300 cattle; 19,274,700 sheep and 19,651,500 goats
Population directly affected by the dzud (disaggregated data from 165 villages in 15 affected aimags (provinces)
Total population
769,106, of which: • 43,555: herders who have lost all
livestock • 163,780: herders who lost half their
livestock or more Total households 217,144
Children under 18 years
279,609 (36% of total affected population) of which: • 18,048: children in dormitories: 18,048 • 77,621: children under-five
Elderly aged 60 and above 44,260 (6%)
Affected population
Pregnant women 8,711 (1%)
1 All dollar signs in this document denote United States dollars. Funding for this appeal should be reported to the Financial Tracking Service (FTS, [email protected]), which will display its requirements and funding on the CAP 2010 page.
6
-
2. CONTEXT AND HUMANITARIAN ACHIEVEMENTS TO DATE
2.1 CONTEXT Dzuds are the result of a confluence of seasonal factors: summer drought followed by heavy snow and unusually low temperatures in winter. While dzuds are a natural phenomenon, their effects can be exacerbated by levels of human development, and activities such as livestock overgrazing, and insufficient fodder stockpiling. Dzuds are not simply livestock famines; they have profound and far-reaching impacts on the people and communities who depend on this vital sector for their food and income. While dzuds are commonly believed to be “winter emergencies”, it is in fact in the spring when the greatest impacts are felt. Spring is traditionally a time of livestock births and the emergence of new pasture. However, the continuation of intense cold and heavy snow means already weakened animals will continue to perish from starvation; pregnant livestock will either miscarry or die during the birthing process, and those offspring that do survive birth will inevitably succumb to a lack of sustenance. The onset of warmer weather also marks the start of the thaw, which results in flash floods caused by melting snow and further isolation and hardship for flood-bound communities. Mongolians are accustomed to harsh winters; however this past winter was the worst in nearly half a century. Since early January 2010, temperatures have consistently been more than 6ºC colder than average and there has been a greater-than-average level of snowfall. This makes spring particularly problematic for herders, who now face repeated cycles of snow thaws and refreezing, denying them access to pasture for livestock grazing. As of the end of April 2010, more than 60% of the country remained blanketed by a thick layer of snow. Many roads are blocked, hindering or preventing access to people and communities in remote areas, and in turn impeding their access to health care facilities and services. In some provinces, fuel and coal reserves have been depleted and other sources of heating supplies have been severely compromised.2 Heavy snow and snowstorms will continue into May, with night temperatures predicted to average from -3ºC to -23ºC. The depth of snow is 61cm in several areas. Affected area and population Mongolia’s herders are the main population of concern for humanitarian organizations. At present, 769,106 people, or more than 28% of the population, have been affected by the dzud primarily through the loss of their livestock. This figure represents 165 villages and comprises 217,144 families, including 279,609 children and 8,711 pregnant women.
At the outset of the dzud, the
government initially declared localized disasters in seven of the country’s 21 aimags (provinces), but later revised the number to 12. At the end of April, following assessments conducted by the government, and confirmed by the UN and the Red Cross, it was found that there were widespread livestock losses and desperate shortages of fodder for animals and food and fuel for families, which was further scaled up to the 15 provinces of Arkhangai, Bayankhongor, Bayan-Ulgii. Dornod Dundgobi, Gobi-Altai, Khentii, Khovd, Khuvsgul, Selenge, Tuv, Umnugobi, Uvs, Uvurkhangai and Zavkhan. A further four provinces were
categorized as in dzud or near disaster. This prompted an urgent appeal to the UN and the international community for support in providing fodder, fuel, food, warm clothing and blankets, medical equipment, medicines and ambulances. The Central Emergency Response Fund (CERF) allocated $3,556,532 23 February, and other donor support was forthcoming to address the most urgent of these needs.
Figure 5. Boy carrying weak animal. UNICEF/ 2010/NewsMN/Nyamsaikhan
2 Source: NEMA update, February 9, 2010. 7
-
Those who have been cut off from accessing health services are particularly vulnerable to preventable and non-preventable diseases and malnutrition. Of particular concern are pregnant and lactating women, the elderly and children. There has been a sharp rise in the incidence of respiratory illness, notably in areas where there is insufficient heating or fuel and food shortages. There have been urgent calls for support to repair failing heating systems in school dormitories, where 18,048 children are housed, and hospitals that are unable to function as a result of the extreme cold inside buildings. In the first three months of 2010, the Ministry of Health (MoH) reported increases in both infant and under-five child mortality, with children dying of preventable illnesses, predominantly respiratory problems, because their families were unable to access emergency medical care. The situation is particularly dire for the 8,711 families or approximately 43,555 Mongolians that assessments indicate have lost all their livestock, meaning they now have no cash flow and therefore have no capacity to buy food or medicines, and are unable to send their children to school. The prevailing climatic conditions also mean they are unable to dry and burn livestock manure for heating and cooking. A further 32,756 families or more than 163,830 Mongolians have lost more than 50% of their livestock. Many more are struggling to keep their remaining animals alive, which at present are too weak to survive through to the summer and which have no market value for herders. The impact of the dzud is especially acute for those families that relied on ‘child money’3, a social welfare benefit for children’s basic survival and education. Fiscal constraints prompted the government to adopt austerity measures just prior to the onset of the dzud to remove this social welfare safety net. The current government social welfare budget is not sufficient to deal with the magnitude of the problem or with the needed allocation of disaster-related funds. There are ongoing advocacy efforts being undertaken with the government to address this issue. Based on the aftermath of the previous dzuds in the successive winters from 1999-2001, predictions can be made on what will occur in the wake of this winter’s dzud. Following the milder 1999-2001 dzuds, there was a mass internal migration of people from rural areas to urban centres, particularly to the capital, Ulaanbaatar, resulting in the city’s rapid population growth, predominantly in poorly serviced peri-urban districts. A survey conducted to identify the causes of the migration to urban areas found that 14% of migrants were driven by the loss of livelihoods as a result of the dzuds (United Nations Population Fund [UNFPA] 2010).4 The government is anticipating a similar mass migration of more than 20,000 people (United Nations Human Settlements Programme [UN Habitat]) and has identified potential land space for migrants, although it has acknowledged the challenges it faces in the provision of basic social services. In an attempt to better predict the next stages of the current dzud disaster, the government undertook a follow-up assessment that confirmed the challenges to come and resulted in a renewed call for assistance from the UN and other donors. The situation is particularly urgent in areas where snow has begun to melt, creating flash floods, forcing the relocation of families, and isolating a number of herders and communities until floodwaters subside, which may be as late as June 2010. 2.2 RESPONSE TO DATE Government response The State Emergency Commission and NEMA have implemented a number of measures, including providing villages with hay and fodder for livestock, food, fuel, clothing, ambulances and other vehicles, diesel power generators and essential medicines. According to NEMA, about 1.1 billion tugrig ($756,000) was initially allocated by the government from its reserve funds to procure and distribute hay and fodder to the hardest hit provinces. The government has since allocated a further MNT Five billion ($3,436,000). NEMA has been responsible for the overall coordination of disaster-relief activities, while the Ministries of Agriculture, Education and Health have been the most active in identifying and seeking humanitarian support. However, government funding remains insufficient to meet the current demands of the affected population.
This shortfall prompted a Government appeal, in January 2010 and again in March 2010 to municipal councils, governmental and NGOs and international agencies for the launch of a coordinated assistance campaign to offset the impact on rural herders’ livelihoods (fodder, hay and fuel) and to provide access to basic essential services. As a result, MNT 600 million ($415,942) was raised locally.
3 The child money programme was a social welfare payment paid monthly to every child, with additional quarterly payments.
4 A total of 70,000 people from 14,000 households in Ulaanbaatar are migrants who moved in the aftermath of the 1999-2001 dzuds.
8
-
The government also received donations of fodder, fuel, blankets, clothing, food and financial support from neighbouring and other governments to meet some of the urgent humanitarian needs triggered by this emergency.
The current dzud has exposed areas of disaster preparedness, response and coordination that need improvement. NEMA responded quickly to the need for an assessment and has attempted to secure resources and distribute goods at the provincial level. A monitoring system was established that included independent NGOs. Information has flowed from the provincial level to the national level. NEMA has also shared a regular situational update with partners, and attended donor coordination meetings. According to the latest reports, roads are slowly being cleared and initial supplies of food, medicine and hay are reaching some of the most critically affected areas.
Figure 6. Dzud-affected areas are still difficult to reach in April - UNDP /2010/ Bunchingiv
However, weaknesses in the areas of NEMA’s technical capacity, communications and emergency coordination with government agencies and external organizations have been observed. Regional and provincial NEMA units in particular are constrained by an overall lack of technical capacity. The dzud has also highlighted the challenges facing NEMA’s search and rescue operations. The reliance on occasional in-kind contributions from donors and on the ad hoc availability of items is a serious hindrance to NEMA’s operational capabilities, whilst at the same time the resources thus far provided by partner organizations have stretched NEMA’s resource-management capacities to the limit. While a number of other partners have expressed interest in providing assistance, there is either little detailed information available or conflicting information that serves only to impede the prioritizing and targeting of responses. There is a demonstrated lack of situational analysis, information management and mapping, all of which are compromising the overall effectiveness of the donor community’s emergency response. The gaps that need to be urgently addressed can be summarized as follows: • Lack of a common and comprehensive humanitarian needs assessment tool • Inconsistent information on the planning and distribution of government and donor aid. Also, no
geographic mapping is available to ensure the coordination of all national and donor contributions
• Lack of systematic coordination between NEMA and the line ministries. Line ministries were approached individually and received support from UN agencies and other stakeholders without clear coordination by NEMA
• Lack of an emergency database and information-management tools within NEMA • Lack of a supply plan for the humanitarian response • Lack of a contingency plan for overcoming logistical and distribution challenges • Lack of snow-removal equipment and snow mobiles to enable contact with isolated and
inaccessible communities • Communication and equipment shortages; some villages cannot be contacted for extended
periods of time • Lack of capacity at the provincial level to comply with central NEMA instructions; and • Lack of an inter-agency contingency plan Building on the lessons learned during the dzud, the UN in Mongolia has offered its support to the government throughout the coming year in addressing the longer-term issues relating to dzud preparedness and sustainable land-management practices. Several coordination gaps, particularly in terms of the flow of information, need to be prioritized. Tough questions related to land management, quality of herds versus quantity, and adequate planning for the anticipated internal migration need to be promptly addressed. These coordination gaps have been identified and addressed as far as feasible within the terms of the response proposed in this Appeal.
9
-
Humanitarian achievements to date The UN Resident Coordinator’s Office has ensured coordination, information gathering, management and mapping, with the primary objectives of strengthening the sectoral approach and providing timely information. Implementation of the system has proved to be an ongoing learning process for the UN, the government and partner organizations. A comprehensive cluster approach that is owned by the government continues to be a goal; however, it will require a considerable degree of capacity-building. Using existing limited resources to the best extent, a streamlined approach was adopted to facilitate the mobilization and coordination of emergency action. Four sectors have been activated: 1. Survival, WASH, Health and Nutrition (SWHN) – United Nations Children’s Fund (UNICEF)5
(lead agency) 2. Education - UNICEF 3. Agriculture – Food and Agriculture Organization of the United Nations (FAO) 4. Early Recovery - United Nations Development Programme (UNDP) Each of the four sectors has conducted a series of needs assessments in collaboration with the government: • Agriculture Sector from 26-28 February, 2010, in Uvurkhangai province • SHN from 27 February to 8 March in Khovd and Uvs provinces. (Action Contre La Faim [ACF])
recently (March) undertook a food assessment study in two of the worst-most affected provinces: Bayan-Ulgii and Uvs
• Early Recovery Sector from 3-8 March in Tuv and Dundgobi provinces • The Education Sector benefited from assessment information provided by the Ministry of
Education, Culture and Science (MECS) that was complemented by field visits from sector leads and a Save the Children assessment
Sector Key elements of response to date Survival, Water Sanitation and Hygiene (WASH), Health and Nutrition
• Provision of essential medicines, sanitation/hygiene items and commodities (antibiotics, oral rehydration salts, zinc, oxygen concentrators)
• Provision of nutritional supplements, multiple micronutrient preparations (MMP) to children between 6-24 months, pregnant and lactating mothers
• Provision of emergency obstetric, maternal and newborn care equipment and supplies to affected areas
• Organized psycho-social support training to trainers, who will train community members in four provinces. Psycho-social support to women and youth through health facilities
• Provision of food aid to affected areas • Funding support provided to cover outreach cost to medical service providers • Printing and dissemination of communication materials, growth monitoring charts,
radio communication and public service announcements in the affected areas • Food supply to reduce risks to maternal and neonatal mortality and morbidity in the
most affected provinces and villages • Provision of clinical delivery and midwifery kits, nutritional supplements, and warm
clothing, and mobile services to remote areas for check-ups and reproductive health (RH) services
• Strengthening capacity through vocational trainings, RH education, and scholarships to youth from affected families for secondary and university level. In addition, support in business skills, crop cultivation, herding and raising awareness on food and nutrition through rural newspapers
• Funding support for restoring livelihood of female headed households • CERF funding received by World Health Organization (WHO), UNFPA and UNICEF
to initiate action on urgent humanitarian concerns Education • Small-scale rehabilitation of heating systems in the most desperate 18 schools with
over 17,000 children in five provinces • Provision of coal and firewood to schools and kindergartens in dzud-affected areas • Provision of blankets, warm boots, sanitary kits and recreational kits to dormitories in
dzud-affected areas • Ongoing psycho-social training to school staff and local authorities • Ongoing education assessment in all provinces • Fortified flour to school and kindergarten children
5 Because the World Food Programme (WFP) does not have a presence in Mongolia, and because there were no NGOs prepared to lead a separate food sector, it was decided that food needs would be addressed in the SWHN Sector. The grouping of issues in one sector has not proven ideal and will be adjusted as the cluster approach is introduced in a systematic manner in the future.
10
-
Sector Key elements of response to date • CERF funding received by UNICEF to initiate action on urgent humanitarian concerns
Agriculture • Support provided to the establishment of a Steering Committee at the Ministry of Food, Agriculture and Light Industry (MoFALI) and appointment of a National Coordinator on Dzud Emergency and Rehabilitation
• Establishment of an FAO Emergency and Rehabilitation Coordination Unit (ERCU) in the MoFALI
• 2,614 most vulnerable herder households identified and provided with emergency assistance in the provinces of Ovorkhangai, Arkhangai, Bayankhongor, Gobi-Altai, Dundgobi, Zavkhan, and Omnogobi
• Procurement of 2,300 metric tonnes (MTs) of concentrate animal feed pellets, 1,307 kg of milk powder for newborn animals and veterinary medicines (including Avermectin 10%, Multivitamin B,C injections and vitamin powder, syringes and needles) to protect surviving livestock
• Distribution of livestock inputs to beneficiaries in collaboration with NEMA • Partnership established with the NGO Rural Investment Support Centre (RISC) in
beneficiary selection and livestock input distribution • Prepare technical notes (leaflets) to assist beneficiary herder households to make
best use of inputs distributed • Agriculture Sector coordination meetings conducted and follow up made with sector
members to coordinate overall requirements for the Agriculture (including Livestock) Sector
• World Society for the Protection of Animals (WSPA) and Cambridge-Mongolian Development Appeal (CAMDA) provided 130 MTs of concentrated fodder and 1.3 MTs of milk powder to herder households in the villages of Erdenedalai, Adaatsag and Delgertsogt in Dundgovi Provinces (March 2010) to protect livestock from dzud conditions and preserve herder livelihoods
Early Recovery • Early Recovery Team to support cash-for-work (CfW) programme established to support NEMA and UNDP, and commenced its function from 1 March 2010
• Needs assessment carried out with a site visit to five provinces and survey in 21 villages of nine provinces, with a total of 263 respondents (82.2% men and 17.9% women; 29.3% under 35 years, 61.3% between 35 and 60 and 9.5% over 60). The assessment revealed urgent need for carcass removal in severely affected provinces to reduce health risks, and a need to address lack of cash by dzud-hit herders for daily subsistence. Another important finding of the study was the huge shortage of basic search and rescue equipment by local emergency departments
• Carcass removal (for two million carcasses6) plan completed, and the programme implementation started in cooperation with NEMA, province leaders, national radio, and Khaan bank in Mongolia
• Livestock removal has already started and over 360,000 carcasses have been buried through CfW programmes
• Herder communities with over 19,000 individuals in the three provinces have organized themselves into carcass removal groups, and commenced burial work in their localities
• Local Civil Society Organizations in Khovd, Umnugovi provinces were supported • Recruitment of professionals for an Early Recovery Support Team to assist NEMA at
its final stage including International Expert for Disaster Coordination and Early Recovery
6 This number was agreed upon with the NEMA. The needs are increasing day by day and it is not possible to continue updating it. Other organizations, such as ADB and Mercy Corps, and the government itself are also working on the carcass removal. The two million figure is the total of the three worst affected provinces.
11
-
3. NEEDS ANALYSIS
3.1 1999-2001 DZUD EXPERIENCES Many lessons were learnt from the previous devastating dzuds that struck Mongolia in three consecutive winters from 1999-2001. In the course of those three years, 11.2 million livestock perished and more than 15,000 herders lost all their animals, which had long-lasting ramifications for herders’ livelihoods and security, particularly for women and children. Those dzuds resulted in a deepening of poverty, a lowering of the gross domestic product (GDP) and an increase in levels of chronic malnutrition and maternal mortality. A 2003 nutritional survey conducted after the 2001 dzud found a greater prevalence of malnutrition in dzud-affected areas and universal foliate deficiency among pregnant women. The survey also identified a high level of chronic malnutrition among children under-five (
-
3.2 PRE-EXISTING SITUATION Prior to the dzud of 2010, disparities between rural and urban areas meant all Mongolians had not benefited equally from the country’s recent economic growth. Until 2008, Mongolia enjoyed annual GDP growth of about eight percent, and there were some improvements in key development indicators, including the health Millennium Development Goals (MDGs), life expectancy at birth and the combined cross-enrolment ratio. For example, the maternal mortality rate decreased from 169.3 per 100,000 live births in 2001 to 44.3 per 100,000 live births in 2008, but rose to 81.4 in 20097. Similarly, the infant mortality rate decreased from 30.2 per 1,000 live births in 2001 to 19.6 in 2008, but rose to 20.2 in 2009. However, the level of poverty remained static at about 35%. Poverty in Mongolia is multi-dimensional and stems from a range of core problems, including a lack of income, unemployment, poor social-service delivery, weak civil participation, and growing disparities between men and women, between urban and rural areas and between the rich and poor. More than 50% of rural Mongolians live in poverty. Levels of malnutrition, stunting, anaemia, vitamin D deficiency are also all higher in rural Mongolia – in the very provinces now increasingly affected by Dzud. The global financial crisis, particularly the fall in commodity prices, led to a sharp slowdown in economic growth in 2009. These external shocks exposed the underlying weaknesses of Mongolia’s economic and policy environment. In 2009, real GDP fell by 1.6%. The social impact of the economic crisis was seen in steep inflation and wage declines, especially in the informal sector. While Mongolia’s booming mining sector promises substantial future economic growth, the abundance of natural resources might not accelerate further diversification of export items and might instead render agricultural and manufacturing goods less competitive. Mining is capital intensive and the growth of the sector will not lead to a significant level of job creation. As a result, the anticipated economic growth fuelled by accelerated commodity exports might not lead to the long-term development of the country. Furthermore, Mongolia’s lack of diversity in its economic structure, its being a landlocked country, and its high dependence on commodity exports that have low added value make the economy extremely vulnerable to downward shifts in world market prices. The country’s food security is also contingent upon weather conditions and is challenged by the difficulties inherent in long-distance transport for domestic food distribution. FAO has classified Mongolia as a Low-Income Food Deficit Country because of the low net income per person, its net importation of basic foodstuffs for three or more years, and the lack of sufficient foreign exchange to purchase needed food on the international market. 3.3 SOCIO-ECONOMIC PROFILE AND LOCATION OF AFFECTED POPULATIONS In Mongolia, livestock are an integral component of rural livelihoods and are an economic safety net, particularly for poor and vulnerable herder households. For those households, livestock and livestock products provide direct food and income. However, the role of livestock extends far beyond what is produced for the market or for direct consumption. The Mongolian pastoralist system provides employment to herder families and those handling and marketing such products as cashmere, meat and dairy products, hides and skins. Livestock is a store of wealth and a form of insurance. It contributes to gender equality by generating income opportunities for women, and products such as milk play an important role in child nutrition. Livestock byproducts are also sources of fuel for cooking and heating. Livestock also have a special cultural significance: livestock ownership may form the basis for the observation of traditional customs or may establish the status of herders. A herder with fewer than 300 head of livestock is considered to be at a subsistence level; a herder with more than 300 head can earn a profit. 8 Despite this, it is widely believed that current livestock numbers exceed the country’s pastureland carrying capacity. A lack of other income-generating opportunities and the value of cashmere have prompted many to dramatically increase their goat herds. And while it is possible to sustain increased livestock numbers in good summers and mild winters, it is not possible to do so in long, cold winters. For people in rural areas, one of the main challenges is distance. Herder families must travel 100-250 km to reach health care facilities. Those facilities themselves suffer from a lack of equipment or 7 Increased MMR due largely to rapid spread of H1N1. 8 World Bank, Livestock Sector Study, 2009.
13
-
outdated and inadequate equipment. For example, in many rural areas, Russian jeeps are used as ambulances, and there is poor heating and equipment for pregnant women and newborns. An emergency obstetric care (EMOC)/essential newborn care (ENC) survey conducted by the WHO, UNFPA, UNICEF and MoH in 2009 found there were shortages of essential drugs and equipment at primary health care facilities. As a result, about 60% of pregnant women were normally referred to the district centre for obstetric care, which was not possible for many when roads became inaccessible. The study also found that heating in delivery rooms was insufficient, with some facilities registering temperatures as low as 11ºC; the minimum temperature needed to ensure the survival of newborns is 25ºC. Prolonged winter conditions have further tested poorly maintained heating systems leading many to collapse and forcing the closure of several areas within health care centres. Another survey also found that many villages had limited numbers of trained personnel capable of dealing with complications relating to obstetric or newborn care. Because of their nomadic lifestyle, almost all rural children six years and above are housed in dormitories during the school year. These children are largely from poor families, with many of the schools are located in villages made inaccessible by the heavy snow. Over the harsh winter, the schools have had to keep children housed over the school holiday periods, ordered not to release them as the Government feared they would be lost attempting to return to their families. This extended school year drained food and fuel resources. Heating systems9 collapsed unable to cope with prolonged and deeper-than-usual cold temperatures. Psychological symptoms and trauma began to manifest as children witnessed the suffering and heart break of their parents, and were unable to be with them. 3.4 CURRENT SITUATION The dzud has had a profound impact on vast areas of the country and has caused severe disruptions to the normal social, economic and cultural patterns of an already vulnerable and highly dispersed population. The challenges will only increase with the onset of spring. The international community alone cannot meet the needs of all vulnerable people. However, in collaboration with the Government of Mongolia and in coordination with government-led and other international relief efforts, this response plan is designed to target the most vulnerable of the affected population. A review of pre-dzud and current data indicates that 769,106 people or 28% of the total population, in 15 provinces require urgent humanitarian assistance. This includes 279,609 children under-18 and 44,260 people over the age of 60.
While dzuds are commonly believed to be “winter emergencies”, it is in fact in spring that the greatest impacts are felt. The onset of warmer weather marks the start of the thaw, which results in flash floods caused by melting snow and further isolation and hardship for flood-bound communities. Flooding has already been reported in Bulgan village in Khovd province, forcing the relocation of up to 100 families. Wide-scale flash flooding is expected in rural areas in late April/May. A significant concern is that the warmer weather will result in the thawing and decomposition of the millions of animal carcasses now littering the Mongolian countryside, which will pose an immense risk to human health, particularly in areas where carcasses are lying in close proximity to settlements or running water. Rotting remains attract flies, rodents, insects, wild birds and dogs, which then become transmission agents for the spread of disease, and there have been unsubstantiated media reports that people who are desperate for food are consuming carcasses. Efforts to remove and bury carcasses have begun, although the persistence of harsh weather conditions has hindered operations and local capacity to remove carcasses is weak and needs urgent attention. Another factor impeding
Figure 8. Cattle struggling to survive amidst heavy snow. UNDP /2010/ Bunchingiv
9 A 2007 Education Ministry study on school dormitory conditions found that there were difficulties in meeting health and hygiene standards as a result of several factors, including the use of the wrong buildings for dormitories, overcrowded rooms, a lack of adequate heating and electricity systems, a lack of proper WASH facilities, and a lack of other basic necessities.
14
-
progress in this regard is the lack of government funds needed to effectively mobilize people to work on carcass removal and to provide them with the requisite disinfectant, protective clothing and tools. The dzud is also the catalyst for a sharp deterioration in national food security, and in turn in the country’s overall nutritional status. The most urgent concern is severe food shortages. At present, 8,711 herder families (approximately 43,555 people) have lost all their livestock and another 32,756 families (163,780 individuals) have lost more than half their animals. The death of livestock means problems with cash flow, food and fuel. While food shortages were predicted, the scale is greater than originally anticipated and the timing much earlier. The situation is now critical for many people. Livestock are essential to food security and agricultural livelihoods, not only for rural smallholders who directly rely on livestock for income and food, but also for urban consumers who benefit from affordable and high-quality meat and dairy products. In the short term, urgent supplies of fodder and the provision of veterinary care are needed to ensure the survival of the remaining livestock. In the medium term, attention must be focused on herder capacity-building, sustainable land use and better methods of fodder production. This spring, the loss of livestock is expected to increase substantially. Currently, 50,000 animals are dying every few days. This critical period, which is expected to continue until as late as June, will be financially devastating for herders, particularly those who have no alternative means of income generation. For many herders, their animals are like family to them, and as the death toll mounts, trauma, fatigue and stress are also increasing. Rising numbers of herders are now reporting to hospital with depression and viewed as being at risk of suicide. As of the beginning of May 2010, more than 7.8 million livestock had perished nation-wide, effectively decimating rural communities and having a particularly devastating impact on smaller-scale herders (those with fewer than 250 animals10) who have lost more than 80% of their livestock and who face losing even more animals in the months to come. In a normal winter, the average loss of livestock is generally no more than two percent. The huge loss of livestock in this year’s dzud is evident in a comparison between the worst four dzuds of the past 50 years:
Table 1: Livestock losses during the past four worst dzuds Year No. of livestock lost 1999-2000 total 2.24 million 2000-2001 total 3.40 million 2001-2002 total 2.07 million 2010 - 5 January 0.05 million 2010 - 1 February 1.8 million 2010 – 18 March 3.8 million 2010 – May 7.8 million
The cause of the dzud and its subsequent impacts on agriculture are complex, but include the following factors:
No. Causes Impact Lack of household-conserved hay production due to the drought Poor body condition of animals with low fat reserves 1.
Summer drought affecting many parts of the country (especially key pastoral areas?) Lack of hay available on the private market
Lack of alternative income-generating opportunities led more people to keep livestock Significant increase in goat population, as cashmere is a ‘cash crop’ 2. Increasing national herd Resultant environmental degradation and over-grazing contributed to poor body condition of animals at the end of the summer
3. Unusually cold winter follows Temperatures below -45oC in many areas for long period Early snow thawed and refroze as an ice cover over pasture Thick layer of snow affecting mobility of herders and livestock
Frequent and heavy snowfall is experienced, preventing access to winter grazing Frequent snowstorms
Role played by former State Fodder Reserve now left to market forces 5. Lack of stored hay for distribution and sale A series of good summers resulted in poor market for hay, so private merchants reduced production in summer 2009
10 According to the National Statistical Office, the minimum number of livestock required for subsistence is 200 head.
15
-
There is a danger of a significant escalation of malnutrition in dzud-affected areas. As many as 30% of children in dzud-affected areas already suffer from stunting. The potential for broader health problems has been exacerbated by the current socio-economic environment. The national poverty level stands at about 36%, and in 2009 the government revoked almost all social safety nets for families. Unless basic social services are guaranteed and employment opportunities are created, the deterioration in access to, and quality of, such services will continue. Health statistics from the affected provinces show increases in both morbidity and mortality. Most alarming is the steady increase in infant and under-five child mortality recorded since January 2010 in dzud-affected areas. As of March 2010, the infant mortality rate in dzud-affected areas rose to 32.3 per 1,000 live births compared with the national average of 22.7 and the 19.6 average of the past five years. The mortality rate for children under-five is 39.7 per 1,000 live births compared with the national average of 28.7; in the same period in 2009, the rate was 23.4. Incidences of maternal mortality predominantly occur in dzud-affected areas: of the six cases registered nation-wide in January 2010, four occurred in dzud-affected provinces. Adults are increasingly suffering from cardiac diseases, strokes, gastric diseases, urinary tract diseases, hypertension, and such stress-related disorders as depression, anxiety, insomnia and fatigue. As of March 2010, adult suicides had been reported in several areas and there had been a rise in stress-related pre-term births. Pregnant and lactating mothers and their babies have been cut off from access to health services, essential drugs and medicines, and district hospitals’ capacity for outreach services is overstretched. The provision of education services to rural populations has always been a challenge given the vastness of the territory, the low population density, the traditional nomadic way of life, and poor infrastructure development. The dzud has overstretched poorly maintained heating systems in school dormitories that house herder children aged from six to 18. Poor heating, a lack of fuel for both heating and cooking, and shortages of food, blankets and warm clothing have all increased the health risks for children. A needs assessment survey conducted by Save the Children (SC) in March-April 2010 covering 74 schools and 26 kindergartens in dzud-affected and non-affected areas found there was a significant risk that children would increasingly drop out of school to help financially support their families. Impact of the dzud on women The dzud has had a particularly significant impact on female herders, who represent 51% of the total herding population. Situational assessments have found that women are facing enormous hardships as a result of the loss of livestock, increased workloads, the depletion of household food supplies and the lack of adequate clothing to withstand the persistently cold weather, and are hence suffering from anxiety, stress and psychological trauma. The depletion of food supplies has caused many women to lose a considerable amount of weight, which places pregnant women at risk of foetal growth retardation. It is feared that many babies born during this period will be underweight. Access to water is another area of concern; 57.4% of the female herders questioned during the early recovery sector’s rapid assessment reported difficulties in accessing drinking water due to blocked paths to wells, and/or wells covered by snow or ice. The trek to wells has also become more arduous and time-consuming.11 While women represent the majority of herders, they have fewer opportunities to start new businesses and face more obstacles than men, making it difficult for them to seek alternate forms of income. Women are also hindered by the persistence of traditional gender stereotypes that define men as breadwinners and leaders of households. According to the rapid needs assessment, 55% of those questioned thought men should have ownership rights over economic assets, including livestock; the same percentage believed men were the key decision-makers in households. Particularly vulnerable are female-headed households (FHH). According to the last Living Standard Measurement Survey, FHH are the societal group most prone to poverty in Mongolia. At present, 24.6% of very poor households and 18.3% of the total number of poor households are headed by females, although FHH comprise only about 12-13% of the total number.
11 Rapid Assessment Findings of the Early Recovery Sector.
16
-
The dzud is already having a negative impact on the national economy. February’s economic figures12 show a sharp upturn in inflation, which rose to 8.7% and was roughly double the January level and up from just 1.2% in December 2009. This increase has primarily been driven by a rise in food (mainly meat) prices, which reflects the substantial livestock losses incurred during the dzud. The rise in inflation will erode incomes and purchasing power, with low-income households likely to be the hardest hit. More than 50% of the animals that have been lost thus far are goats, which will likely result in a cashmere shortage during the coming season, and hence will impact heavily on those people whose incomes depend on cashmere. The dzud has resulted in significant setbacks in the area of poverty reduction and hence progress toward achieving Mongolia’s MDGs, particularly MDG1. With the loss of more than 16% of the country’s livestock, many herders have been left without a source of income. While heavy livestock losses have occurred before in Mongolia, the magnitude of this winter’s losses – three times higher than the previous worst dzud - makes it an extraordinary situation. For many herders, it marks a collapse of their lives and their livelihoods. The majority of people living in poverty are based in rural Mongolia, deepening the economic impact for already vulnerable communities. The majority of those affected by the dzud are nomadic herders, who make up 35% of Mongolia’s workforce and for whom livestock represents about 70% of their total assets. Many are also saddled with the added burden of debt in the form of outstanding loans from financial institutions.13 It is an evolving human tragedy. The indirect economic effects of the dzud will also affect the national poverty level and exacerbate the inequality between urban and rural standards of living. In the short term, affected herders must be given the opportunity to generate alternate forms of direct income; in the medium term the goal must be to re-establish people’s livelihoods in ways that make them less vulnerable to future natural disasters and that have less of an impact on the environment. 3.5 FUTURE COORDINATION NEEDS The Government of Mongolia, guided by NEMA, has provided the first line of Dzud response. Roads are progressively being cleared and initial supplies of food, medicines and hay for animals are beginning to reach some of the most critically-affected areas. However, provincial and regional NEMA units remain constrained by a lack of technical capacity. NEMA’s capacity to coordinate donor-funded assistance also needs strengthening. The resources provided by various partners have stretched NEMA’s resource management capacities to the limit. Proper situational analyses, information management and mapping are currently lacking.
12 World Bank: Mongolia Monthly Economic Update - February 2010.
13 Due to a lack of hay and fodder, herders have requested loans from local banks in order to buy costly the feed needed to prevent further livestock losses.
17
-
4. THE 2010 COMMON HUMANITARIAN ACTION PLAN
4.1 SCENARIOS Most-likely scenario • As the snow and ice melts, national and international assistance will gradually be able to reach
the affected population • If food reaches the affected population, the food security situation will gradually stabilize and
there will be greater access to health care • Undernourishment, malnutrition and other health issues will need ongoing food and
micronutrient support • A comprehensive vaccination campaign will be needed • The massive number of animal carcasses strewn across the country will pose a health risk,
particularly in areas where flash floods displace the carcasses • Flash flooding will lead to the relocation of hundreds of families for periods of up to one month • Psycho-social problems will continue to manifest, with many people needing counselling and
support. • Child labour will increase as a result of families’ desperate need for income • Many herders will struggle to continue in this employment, which will only remain viable if they
receive immediate fodder and veterinary support. • Many herders who have lost everything will migrate to peri-urban areas; retraining initiatives and
alternate employment options will be needed • At least one percent of the population will migrate and will face significant challenges in
accessing employment and will lack access to food and basic services for a period of at least six months
Best-case scenario • A rapid improvement in the weather with limited flooding from melting snow, and a long
productive summer, will ensure that more herders than currently predicted will have access to sufficient food, support and medical care, their children will remain in functioning dormitories and their herds will gain sufficient strength to survive the year ahead
• A percentage will still migrate, however they will benefit from planning and services to ensure safe resettlement
Worst-case scenario • Winter conditions will continue for longer than normal, many roads will remain blocked, with a
mixture of mud and sludge replacing hardened snow • This will exacerbate difficulties in reaching people living in remote areas and those cut off by
flash floods from melting snow • This in turn could prompt a further deterioration in food security and access to medical care • The carcasses of dead animals that were preserved by the ice and snow will start decaying,
with all the attendant public and environmental health risks • Outbreaks of disease and increases in malnutrition will affect vulnerable populations, resulting
in further increases in child and maternal mortality • Animal deaths will continue to rise, further impoverishing those who are dependent on livestock
for income and food • This will lead to a greater than predicted migration to peri-urban areas, overwhelming any
existing services and challenging efforts to meet their needs • A shorter than normal summer will lead to low fodder production, resulting in a Dzud that lasts
into 2011
18
-
4.2 STRATEGIC OBJECTIVES FOR HUMANITARIAN ACTION IN 2010 The most dangerous period of a dzud is in the spring, when the full impact of the winter’s devastation is realized. While humanitarian efforts to date have responded to many of the needs of those most affected by the dzud, the full scope of the humanitarian impacts of the disaster is only now beginning to be seen. For the affected population, these include severe food shortages, a lack of access to basic social services, economic ruin for many herders, and emotional trauma among the affected populations. This Dzud Response Plan focuses on meeting three main priorities with a combination of immediate, medium and long-term measures. It addresses the urgent humanitarian needs of the most vulnerable groups and ensures that critical institutions such as schools and medical facilities are accessible and remain functional throughout the coming year. It defines and supports critical early recovery actions, specifically related to livestock, and aims to strengthen the capacity of affected populations and the government to prepare for and deal with the consequences of the dzud and the next winter. Strategic objectives
Address the most critical humanitarian needs of the vulnerable groups and institutions for the period between April 2010 and April 2011. Strategy Food security, health, nutrition, WASH, psycho-social support and education are priority sectors for humanitarian action in 2010. Organizations involved can prevent loss of life
with relatively modest programmes to provide basic health care, psycho-social support, safe drinking water, sanitation, food, funding support for restoring livelihood of FHH and time-critical agricultural and livestock inputs for the affected populations. Working in these sectors, humanitarian organizations will integrate gender-sensitive and early-recovery aspects into their programmes to help ensure a long-term impact.
Indicator Target
Decrease of acute malnutrition among children under-five (below five percent) (weight for height as percent)
Infant mortality rate maintained at past five-year average 19.6 per 1,000 live births
Maternal mortality rate maintained at past five-year average 74.9 per 100,000 live births
Percentage of relocated children aged 5-11 enrolled in primary school and young children in pre-school
Primary -100% Pre-school – 60%
Prioritized schools have functioning heating and children have access to water and sanitation
Heating – 100% Water/San: 60%
Percentage of affected herders with their remaining herds protected following 2010 dzud 60%
Enhanced household level food security, family income and livelihoods of the target beneficiary herder families
approximately 36,000 herders
Number of carcasses removed from prioritized areas at least two million
19
-
Address the protracted humanitarian and early recovery needs of the affected population by means of gender-sensitive livelihood-based humanitarian programming to prevent further or renewed deterioration into a humanitarian emergency.
Strategy Immediate attention to carcass removal to prevent the spread of disease and to alleviate the triggers of psycho-social distress will be achieved by destitute herders who will be employed to undertake this work. The preservation of food security and surviving animals will be achieved through fodder and medical support to viable herds. Agricultural support to herders to recover their livelihoods through the provision of technical assistance and essential livestock inputs will be provided. Emphasis will be made to enhance livestock rearing practices, improve fodder production, promote more cost-effective health care methods and strengthen access to veterinary services in rural communities. Capacity-building and support for improved markets and product lines will be provided to viable herders. Retraining and support for alternate forms of employment will be provided to herders, with particular focus on women, who have lost their livestock, including approaches that will allow them to remain in rural areas and work on the land. Indicator Target
Area to be cleaned of carcasses 128,000 km2*
Number of herders benefiting from CfW on carcass removal 20,000 of which 3,000 are female herders
Percentage of herder groups earning additional incomes through alternate income generation
Minimum 80% of herder families engaged in small- scale vegetable production
Number of herder families receiving critical livestock inputs 13,410 (80,460 people)
Percentage of herder groups/cooperatives registered as formal business entities Minimum 50%
*Note: following Government recommendations, this area will encompass the three provinces of Khovd, Dundgobi and Ovorkhangai.
Put in place preparedness, disaster risk-reduction and contingency planning (mainstreamed throughout sectors) in anticipation of worsening conditions resulting from a post-dzud spring/summer season, and preparing for the next winter as well as for other risks such as earthquakes. Strategy
National and local capacity will be strengthened for increased resilience, risk management and effective response to recurrent disasters, which will lay the groundwork for long-term recovery and improved conditions for future development. Support will also be given to NEMA in developing a coordinated approach to early recovery response and planning. Indicator Target
Number of copies of the 2010 Dzud Experience and Lessons Learned Report published and distributed 500
National Recovery Plan developed and approved Plan officially approved
Clusters formed in all areas relevant to situation in Mongolia, with active Government participation. Consultations and training conducted, Clusters formalized, plans developed and tested In a simulation in April 2011
Cluster consultations co-chaired by ministries
20
-
Indicator Target
NEMA’s coordination and information management enhanced
Quality donor report by NEMA, smoother information dissemination by NEMA
Medium-term framework with action plan for disaster preparedness, prevention and risk reduction prepared and endorsed by key stakeholders for implementation, with emphasis on reducing risks of impact of dzud on herders’ livelihoods
Approved document with NEMA
Percentage increase in technical capacity of NEMA departments in Uvurkhangai, Khovd, Dundgobi 50%
Number of personnel working in local emergency departments trained for improved search and rescue operations during dzud 300
4.3 STRATEGIC MONITORING PLAN
Monitoring and evaluation remains a crucial component of the relief and recovery effort in Mongolia, although it is hampered by the limited capacity of the government and international organizations to conduct regular and accurate surveys due to the vast area affected, the current difficult conditions and the very limited capacity of the international humanitarian community. As conditions improve, combined UN, NGO and government monitoring teams will operate in the affected areas. In addition, each sector will develop its own strategic plans with an emphasis on monitoring and evaluation within the sector. Sectors will closely monitor the situation during the year providing data by sector and also a report on the progress made towards the CAP’s strategic objectives. Sectors will present quarterly reports to the UN Country Team meetings focusing on the progress made towards their targets. The UN Resident Coordinator’s Office will offer support in analysis and the compiling of relevant data, with a particular emphasis on reviewing the overall Appeal at its mid-term review. Logical Framework for the Humanitarian Response
Key indicators Corresponding Response Plan Objectives
Address the most critical humanitarian needs of the vulnerable groups and institutions for the period between April 2010 and April 2011
− Decrease of acute malnutrition among children under-five below 5% (weight for height as percent)
− Child mortality rate maintained at past five-year average
− Maternal mortality rate maintained at past five-year average
Survival, WASH, Health and Nutrition Sector
• Prevent maternal and child morbidity and mortfrom newborn complications, common childhooillnesses including diarrhoea, acute respiratoryinfection (ARI) and pneumonia
• Ensure that herder families in areas severely affected by dzud-disaster areas are provided with food, nutritional and essential medical supplies
• Strengthen women’s health and resilience through psycho-social support, medical check-ups, micronutrients and livelihood support
• Prevent water-borne diseases among immigrant population affected by dzud in the temporary resettlements by ensuring access to clean water sources and promoting good hygiene practices
− Percentage of relocated children aged 5-11 enrolled in primary school and young children in pre-school
− Prioritized schools have functioning heating and children have access to water and sanitation
Education Sector
• To sustain enrolment and attendance of rural children in schools by creating child friendly physical and psycho-social environment in rural dormitories and schools and expanding non-formal education facilities and dormitory arrangements
21
-
− Quantity and quality of delivered critical livestock inputs in timely manner
Agriculture Sector
• Stabilize the household level food security and livelihood by supporting sustainable livestock production and agriculture
• Strengthen the fodder production and animal health care immediately, supporting the dzud-affected herder families to protect and increase the quality of their surviving herd
− # of carcasses removed (at least two million)
Early Recovery
• Remove 1.5-2 million livestock carcasses14 removed in the territories of 225 areas in three provinces thereby reducing health risks and pollution of living environment of rural households
Address the protracted humanitarian and early recovery needs of the affected population by means of gender-sensitive livelihood-based humanitarian programming to prevent further or renewed deterioration into a humanitarian emergency.
− Area to be cleaned from carcasses (128,000 km2)
− # of herders benefitting from CfW on carcass removal (20,000) of which # of female herders (3,000)
− Percent of herder groups earning additional incomes through alternate income generation (minimum 80%) percent of herder families engaged in small-scale vegetable production (minimum 80%)
− Percent of herder groups/cooperatives registered as formal business entities (minimum 50%)
Early Recovery
• Reduce health risks of rural population through removal of two million carcasses with community involvement while providing at least 30,000 herders with immediate cash income for their daily food needs
• Provide over 6,000 herders with alternate income generation opportunities to lessen their dependence on livestock herding exposed to high risks
− Percentage of children successfully enrolled at non-formal education facilities.
Education
• To prevent children of dzud-affected poor families from hazardous child labour in informal mining by providing non-formal education
Put in place preparedness, disaster risk reduction, contingency planning (each
mainstreamed throughout sectors) in anticipation of worsening conditions resulting from a post-dzud spring/summer season, and preparing for the next winter
− Data system designed and functioning in 100% of relevant institutions
Survival, WASH, Health and Nutrition
• Establish data collection mechanisms within the relevant institutions at national, sub-national and provincial levels
− Improved knowledge and capacity of target beneficiary herder families in disaster preparedness and risk reduction
− Functional Agriculture Sector with effective coordination and facilitation mechanism
Agriculture Sector
• Increase preparedness for similar situation in future
• Increase markets for a wider range of livestock products
− # of copies 2010 Dzud Experience and Lessons learned report published and distributed (500)
− National Recovery Plan developed and approved
− # of users of NEMA website for GIS-based disaster loss and mapping (at least 600)
− Percent of increase in technical capacity of NEMA departments in Uvurkhangai, Khovd, Dundgobi (50%)
Early Recovery Sector
• Support the government emergency agency in early recovery planning, coordination, and improvement of its technical capacity for search and rescue operations during potential dzud
− Country-wide training undertaken and education sector emergency plans in place
Education Sector
• To strengthen coordinated Education Sector emergency preparedness and response capacity at all levels
14 Death toll of the livestock is expected to increase in coming spring months.
22
-
4.4 CRITERIA FOR SELECTION AND PRIORITIZATION OF PROJECTS A. SELECTION Projects were selected according to the following criteria: • The project is consistent with the priorities identified by the relevant ministries and is consistent with overall sectoral strategy • The project is designed to reach the most affected populations, without discrimination of any form • The project is in line with a human rights-based approach, with gender a key consideration • The project does not duplicate activities implemented by other organizations • The implementing agency and/or its implementing partners have a recognized capacity to implement the project • The project takes into account logistical needs; and • The project is cost-effective B. PRIORITIZATION The projects submitted were mapped geographically to avoid duplication and tested for complementarity. Projects per sector were prioritized according to their urgency in reaching affected populations with life-saving interventions. In this regard, food and nutrition, fodder and medical care are considered urgent interventions.
23
-
4.5 SECTOR RESPONSE PLANS 4.5.1 SURVIVAL, WASH, HEALTH AND NUTRITION SECTOR Lead Agency UNICEF Implementing Partners UNFPA, MoH, provincial and district health departments, NEMA, Adventist
Development and Relief Agency (ADRA), Action Contre la Faim (ACF), SC Number of Projects 7 Sector Objectives • Prevent maternal and child morbidity and mortality from newborn
complications, common childhood illnesses including diarrhoea, ARI and pneumonia
• Ensure that herder families in areas severely affected by dzud disaster areas are provided with food, nutritional and essential medical supplies
• Strengthen women’s health and resilience through psycho-social support, medical check-ups, micro-nutritients and livelihood support
• Prevent water-borne diseases among immigrant population affected by dzud in the temporary resettlements by ensuring access to clean water sources and promoting good hygiene practices
• Establish data collection mechanisms within the relevant institutions at national, sub-national and provincial levels
Beneficiaries Total direct beneficiaries 104,980 people, including