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Cablegate: Monitoring and Evaluating Icmc's Humanitarian

This record is a partial extract of the original cable. The full text of the original cable is not available.

251630Z Mar 04

UNCLAS SECTION 01 OF 03 AMMAN 002273

SIPDIS

DEPT FOR PRM/ANE, NEA/ARN AND NEA/NGA

E.O. 12958: N/A
TAGS: PREF PREL PHUM IZ JO
SUBJECT: MONITORING AND EVALUATING ICMC'S HUMANITARIAN
ASSISTANCE PROGRAM FOR VULNERABLE IRAQIS IN JORDAN

REF: A) PRM MONITORING GUIDANCE OF 9/29/03

B) 03 AMMAN 1587

1. REGIONAL REFCOORD AND REF ASSISTANT MONITORED ICMC'S
HUMANITARIAN ASSISTANCE PROGRAM FOR VULNERABLE IRAQIS IN
JORDAN ON FEBRUARY 25 (COOPERATIVE AGREEMENT SPRMCO03CA127).
IN ADDITION TO MEETINGS AT CARITAS (ICMC'S LOCAL
IMPLEMENTING PARTNER), WE ALSO CONDUCTED HOME VISITS TO FOUR
PROSPECTIVE BENEFICIARIES WITH PROJECT CASEWORKERS. REF
ASSISTANT AND VISITING PRM/ANE PROGRAM OFFICER ALSO
MONITORED THE PROJECT IN SEPTEMBER 2003. CABLE IS KEYED TO
MONITORING GUIDANCE PROVIDED REF A.

A. REFCOORD AND REF ASSISTANT MET WITH ICMC PROJECT MANAGER
CLIVE CAVANAGH AND CARITAS PROJECT OFFICER RANA ISHAQ ON
FEBRUARY 25 AT THE CARITAS PROJECT OFFICE IN AMMAN. THEY
ALSO CONDUCTED HOME VISITS WITH CARITAS CASEWORKERS GABY DAW
AND NADA DALAQ.

B. ICMC AND ITS LOCAL IMPLEMENTING PARTNER CARITAS ARE
RUNNING A SOLID, WELL-PERFORMING PROJECT THAT IS REACHING
VULNERABLE IRAQIS THROUGHOUT JORDAN. IT IS MEETING AND, IN
SOME CASES, HAS ALREADY EXCEEDED KEY PROJECT OBJECTIVES DUE
TO HIGH DEMAND FOR ASSISTANCE AND NEGOTIATED REDUCTIONS IN
THE COST OF PROVIDING SERVICES. THE PROJECT ADDRESSES PRM
CROSS-CUTTING POLICY GOALS OF PROTECTION, WOMEN, CHILDREN
AND REPRODUCTIVE HEALTH. HOWEVER, AS MORE TIME PASSES SINCE
THE FALL OF SADDAM HUSSEIN'S REGIME, IT IS INCREASINGLY
DIFFICULT TO CLASSIFY IRAQIS IN JORDAN AS REFUGEES OR ASYLUM-
SEEKERS. MOST APPEAR TO BE IRREGULAR MOVERS IN SEARCH OF A
NEW, PERMANENT HOME. WHILE THEIR ILLEGAL STATUS LEAVES THEM
VULNERABLE IN TERMS OF ACCESS TO SERVICES, WE DO NOT BELIEVE
THAT HUMANITARIAN ASSISTANCE TO IRREGULAR IRAQI MOVERS
SHOULD LAST INDEFINITELY.

C. FROM SEPTEMBER 1, 2003 UNTIL FEBRUARY 15, 2004, CARITAS
RECEIVED 1,561 CASES, PROVIDING SERVICES TO 1,091 CASES THAT
MET THE EXTREME VULNERABILITY CRITERIA. PROJECT MANAGER
CAVANAGH REPORTS THAT 65 PERCENT OF THE CASES ARE NEW, AS
PREVIOUS BENEFICIARIES (WHO LAST YEAR KEPT COMING BACK TO
CARITAS FOR MORE ASSISTANCE) NOW UNDERSTAND THAT CARITAS IS
ABLE TO PROVIDE ONLY LIMITED ASSISTANCE. AS OF FEBRUARY 15,
ICMC PROVIDED THE FOLLOWING SERVICES:

- 504 IRAQIS RECEIVED OUTPATIENT MEDICAL CARE (VICE A
TARGET OF 2,000 BY AUGUST 31)
- 182 IRAQIS RECEIVED INPATIENT MEDICAL SERVICES (VICE A
TARGET OF 500 BY AUGUST 31)
- 268 IRAQIS RECEIVED HUMANITARIAN ASSISTANCE (VICE A
TARGET OF 500 BY AUGUST 31)
- 195 IRAQI CHILDREN ARE ENROLLED IN ACCREDITED PRIMARY
SCHOOLS (VICE A TARGET OF 100 BY AUGUST 31)
- 9 IRAQI FAMILIES RECEIVED LIMITED ACCOMMODATIONS
SUPPORT (NOT INCLUDED AS A SPECIFIC PROJECT OBJECTIVE); AND
- 7 IRAQI FAMILIES RECEIVED LIMITED FOOD ASSISTANCE (NOT
INCLUDED AS A SPECIFIC PROJECT OBJECTIVE)

CAVANAGH REPORTS AN INCREASED DEMAND AMONG THE IRAQI
COMMUNITY FOR BASIC HUMANITARIAN ASSISTANCE, INCLUDING
REQUESTS FOR RENT AND FOOD ASSISTANCE, PROGRAMS NOT
SPECIFICALLY COVERED IN THE GRANT AGREEMENT. IN VERY
SPECIFIC CASES OF EXTREME VULNERABILITY (E.G., A PREGNANT,
SINGLE FEMALE HEAD OF HOUSEHOLD AND AN ELDERLY WOMAN WHO
COLLAPSED FROM MALNUTRITION-RELATED PROBLEMS IN THE CARITAS
OFFICE), CARITAS DECIDED TO USE HUMANITARIAN ASSISTANCE
FUNDS TO PROVIDE EXCEPTIONAL ASSISTANCE SUCH AS TWO MONTHS
OF RENT (ROUGHLY USD 100) OR A ONE-TIME FOOD AID PACKAGE.
BASED ON ANECDOTAL EVIDENCE FROM CARITAS CASEWORKERS AND
FROM THE BENEFICIARIES THEMSELVES, MANY POOR IRAQIS IN
JORDAN -- BOTH OLD AND NEW CASELOAD -- HAVE SIMPLY EXHAUSTED
THEIR REMAINING FINANCIAL RESOURCES AND ARE UNABLE TO
SUPPORT THEMSELVES THROUGH WHATEVER CASUAL JOBS THEY CAN
FIND. THERE IS AN INCREASING NUMBER OF FEMALE-HEADED
HOUSEHOLDS AMONG THE IRAQI COMMUNITY, AS IRAQI MEN LEAVE
THEIR FAMILIES HERE "TEMPORARILY" EITHER TO REESTABLISH
HOMES IN IRAQ OR SEEK WORK IN EUROPE, NEVER RETURNING TO
JORDAN. A FEW IRAQIS HAVE COME TO JORDAN SPECIFICALLY FOR
CARITAS' MEDICAL ASSISTANCE BUT CAVANAGH DECLINED TO PROVIDE
ASSISTANCE TO THESE CASES.

THANKS TO NEGOTIATED REDUCTIONS IN HEALTH CARE AND EDUCATION
COSTS, CARITAS HAS BEEN ABLE TO PROVIDE SERVICES TO A
GREATER NUMBER OF IRAQIS. IN THE HEALTH CARE SECTOR,
CAVANAGH NEGOTIATED INPATIENT SERVICE AGREEMENTS WITH A NEW
SERVICE PROVIDER, PALESTINE HOSPITAL, THAT IN TURN PROMPTED
TRADITIONAL CARITAS PARTNER, THE ITALIAN HOSPITAL, TO REDUCE
THE RATES CHARGED TO CARITAS UNDER THE GRANT AGREEMENT. IN
ADDITION TO REACHING MORE PATIENTS, THE SAVINGS ALSO ENABLED
CARITAS TO PERFORM A GREATER NUMBER OF MORE COMPLICATED
MEDICAL INTERVENTIONS, SUCH AS HEART OR CANCER SURGERIES.
IN THE EDUCATION SECTOR, CARITAS HAS BEGUN SENDING IRAQI
CHILDREN TO GOJ SCHOOLS, AT A COST OF 25 JD (USD 35) PER
PUPIL PER YEAR, VERSUS THE 177 JD (USD 247) PER PUPIL PER
YEAR REQUIRED TO SEND STUDENTS TO PRIVATE SCHOOLS AND
INCLUDED IN THE PROJECT BUDGET. REFCOORD VERIFIED COSTS AND
SERVICES THROUGH A SPOT-INSPECTION OF INVOICES AND COPIES OF
PRESCRIPTIONS.

CARITAS HAS EXPANDED ITS OPERATIONS TO REACH VULNERABLE
IRAQIS OUTSIDE AMMAN, INCLUDING IN MAFRAQ, SAHAB AND MADABA.
IRAQIS LIVING IN THESE AREAS HEARD ABOUT THE CARITAS
ASSISTANCE PROGRAM THROUGH THE IRAQI GRAPEVINE AND MANY HAVE
BEEN REFERRED TO CARITAS BY OTHER RELIEF AGENCIES, INCLUDING
UNHCR. CARITAS COORDINATES EXTENSIVELY WITH OTHER NGOS IN
JORDAN AND PARTICIPATES IN MEETINGS OF UNHCR IMPLEMENTING
PARTNERS.
FINALLY, ICMC - BOTH THROUGH LOCAL REPRESENTATIVE CAVANAGH
AND GENEVA-BASED STAFF - HAS WORKED WITH CARITAS OFFICIALS
TO IMPROVE FINANCIAL REPORTING. CAVANAGH (WHO HAD
COMPLAINED BITTERLY ABOUT CARITAS' FINANCIAL PROCEDURES
UNDER THE FIRST GRANT AGREEMENT) SAID ICMC IS NOW SATISFIED
WITH CARITAS' FINANCIAL REPORTING AND TRANSFERS SYSTEM.

D. CARITAS HAS NOT YET IMPLEMENTED ITS PLANNED NON-FORMAL
PRIMARY EDUCATION SYSTEM OR ITS HYGIENE AND PEST CONTROL
KITS. CARITAS WAS STILL DEVELOPING THE NON-FORMAL EDUCATION
PROGRAM, MEETING WITH LOCAL VOCATIONAL TRAINING CENTERS AND
NEGOTIATING SERVICE AND PRICE AGREEMENTS. ONCE CARITAS
REACHES A SATISFACTORY DEAL (ROUGHLY USD 35-45 PER COURSE),
IT WILL OFFER COMPUTER AND ENGLISH-LANGUAGE TRAINING TWO
HOURS PER DAY, FOR TWO MONTHS, TO IRAQI CHILDREN AGES 12-16
AND YOUNG ADULTS AGES 20-25 WHO HAVE NOT BEEN ENROLLED IN
FORMAL EDUCATION SYSTEMS IN JORDAN. CARITAS HAS NOT YET
STARTED PROVIDING HYGIENE AND PEST CONTROL KITS TO
VULNERABLE IRAQIS, AS THAT PARTICULAR SERVICE IS NOT
REQUIRED UNTIL WARMER WEATHER BEGINS. BASED ON DEMAND FOR
THESE SERVICES LAST YEAR, CAVANAGH IS CONFIDENT CARITAS WILL
BE ABLE TO REACH BOTH OBJECTIVES BEFORE AUGUST 31.

BASED ON THE HOME VISITS WE CONDUCTED IN FEBRUARY, IT SEEMS
THAT MANY IRAQIS IN JORDAN ARE IRREGULAR MOVERS IN SEARCH OF
A NEW PERMANENT HOME. FOR EXAMPLE, TWO OF THE FOUR FAMILIES
WE MET WERE WAITING FOR APPROVAL TO EMIGRATE TO THE U.S.
UNDER OUR IMMIGRANT VISA PROGRAM. NONE OF THE FAMILIES WERE
RECOGNIZED BY UNHCR AS REFUGEES (ALTHOUGH ALL QUALIFIED FOR
TEMPORARY PROTECTION) AND NONE HAD ANY INTENT TO RETURN TO
IRAQ. WHILE THESE FAMILIES WERE VULNERABLE DUE TO THEIR
LACK OF ACCESS TO GOJ SERVICES, THREE OF THEM RECEIVED SOME
FINANCIAL ASSISTANCE FROM FAMILY MEMBERS LIVING ABROAD.
(CARITAS CASEWORKERS WERE QUICK TO RECOGNIZE THE FAMILIES'
CIRCUMSTANCES AND DID NOT APPROVE THESE THREE FAMILIES FOR
ASSISTANCE.) ONLY ONE FAMILY, A FEMALE-HEADED HOUSEHOLD
WITH YOUNG CHILDREN, DID NOT HAVE ACCESS TO ANY NON-CARITAS
SUPPORT.

E. CARITAS' TEAM OF SIX SOCIAL WORKERS, A PROJECT OFFICER,
PROJECT MANAGER AND ONE SECRETARY SEEMS ADEQUATE FOR THE
CASELOAD, ESPECIALLY SINCE CARITAS IMPLEMENTED AN
APPOINTMENT SYSTEM IN SEPTEMBER 2003 THAT ENABLES THE TEAM
TO BETTER MANAGE THE HIGH DEMAND FOR SERVICES. ALL
PERSONNEL APPEAR TO BE FULLY EMPLOYED.

F. THE CARITAS PROJECT OFFICE - THREE ROOMS IN A DOWNTOWN
AMMAN OFFICE BUILDING -- IS CLEAN, SPACIOUS AND FULLY
UTILIZED. ALL EQUIPMENT APPEARS TO BE IN GOOD WORKING ORDER
AND USED ON A REGULAR BASIS. CARITAS HAS AN APPROPRIATE
INVENTORY CONTROL SYSTEM IN PLACE FOR ALL EQUIPMENT AND
SUPPLIES PURCHASED WITH PRM FUNDS.

G. Refcoord reviewed Caritas' inventory system and
confirmed that all PRM-purchased equipment can be identified
and located.

H. WHILE REAL HUMANITARIAN NEEDS EXIST AMONG SOME OF THE
ESTIMATED 300,000 IRAQIS RESIDENT IN JORDAN, IT IS
INCREASINGLY DIFFICULT TO JUSTIFY CONTINUED ASSISTANCE TO
IRAQIS LIVING OUTSIDE IRAQ. NEARLY A YEAR AFTER THE FALL OF
BAGHDAD, MOST VULNERABLE IRAQIS IN JORDAN SEEM TO FIT THE
DEFINITION OF ECONOMIC MIGRANT OR IRREGULAR MOVER, RATHER
THAN REFUGEE. SHOULD PRM CONTINUE TO SUPPORT ASSISTANCE
PROGRAMS FOR VULNERABLE IRAQIS IN JORDAN, WE RECOMMEND THAT
THE PROGRAM BE CAREFULLY TAILORED TO REFLECT UNHCR POLICY ON
ASSISTED RETURNS. AS SOON AS UNHCR LIFTS ITS TEMPORARY
PROTECTION ORDER FOR IRAQIS AND ORGANIZES ASSISTED RETURNS,
PRM-FUNDED ASSISTANCE PROGRAMS SHOULD CHANGE TO SUPPORT
VOLUNTARY REPATRIATION.

GNEHM

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