Palestine HUMANITARIAN CRISES ANALYSIS 2016

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1 Palestine HUMANITARIAN CRISES ANALYSIS 2016 Each year, Sida conducts a humanitarian allocation exercise in which a large part of its humanitarian budget is allocated to emergencies worldwide. This allocation takes place in the beginning of the year as to ensure predictability for humanitarian organisations and to allow for best possible operational planning. In an effort to truly adhere to the humanitarian principles Sida bases its allocation decisions on a number of objective indicators of which the most important are related to the number of affected people, vulnerability of affected people and level of funding in previous years. One of the indicators is also related to forgotten crises in order to ensure sufficient funding also to low profile crises. Besides this initial allocation, another part of the humanitarian budget is set aside as an emergency reserve for sudden onset emergencies and deteriorating humanitarian situations. This reserve allows Sida to quickly allocate funding to any humanitarian situation throughout the year, including additional funding to Palestine. For 2016 the Palestine crisis is allocated an initial 40 MSEK in January Close monitoring of the Myanmar crisis follows throughout the year for potentially additional funds. 1. CRISIS OVERVIEW The humanitarian context of Palestine is unique among today s humanitarian crises and remains directly tied to Israeli Occupation. The lack of progress in the Middle East Peace Process (MEPP) has resulted in a protracted crisis with humanitarian consequences for the Palestinian population. Palestinians in the West Bank, Gaza and East Jerusalem are a population under occupation, denied their freedom of movement, subjected to conflict and violence, demolition of assets, forced displacement, administrative detention, exposure to explosive remnants of war, and denial of access to livelihoods. Across Palestine, one in two Palestinians, roughly 2.3 million people, will need some form of humanitarian assistance in The context of the opt is that of an occupation where the occupying power, the Government of Israel, is responsible for addressing the development and humanitarian needs of the Palestinian population. Where these needs have not been met also in direct violation of the 4th Geneva Convention, Israel continues to move its civilian population into settlements in the occupied territories, giving them preferential access to water and other natural resources. The European Union has in different Foreign Affairs Council Conclusions reiterated that settlement, the separation barrier, demolition of homes and evictions of Palestinian people or communities are illegal under international law. In the West Bank continue to be subject to a complex system of control, including physical (the Barrier, Checkpoints, roadblocks) and bureaucratic barriers (permits, closure of areas) which restrict their right to freedom of movement. The expansion of settlements, which are illegal under international law, restrictions on access to land and natural resources and ongoing displacement due to demolitions in particular, continue. Israeli policies, including the planning regime in place, continue to curtail the ability of Palestinians in Area C and East Jerusalem to plan their communities and build homes and infrastructure. The result is further fragmentation of the West Bank. In September 2015, tension increased in East Jerusalem in the context of increased access of settlers and other Israeli groups to the Haram al Sharif and fears that the status quo at the site was being changed, which has been denied by the Israeli authorities but disputed by both the Jordanian and Palestinian Authorities. Following a deterioration of the situation from 1 October, with violence spreading to Israel and the wider West Bank, Israeli forces have increased restrictions on movement and access of Palestinians in the Old City and Palestinian neighbourhoods in East Jerusalem, which have disrupted access to educational and health services, as well as places of work. The Israeli Security Cabinet also approved a series of additional measures including expediting punitive demolitions and revoking the residency rights of perpetrators of attacks that may amount to collective punishment. Other measures of concern include imprisonment and fines imposed on minors and their parents as a result of stone throwing. The Gaza Strip has suffered three wars in eight years. The Israeli blockade combined with Egyptian restrictions, has continued to undermine the living conditions of 1.8 million residents of the Gaza Strip which is a violation under IHL. Any development prospects have been seriously hampered by the blockade and the limited imports and exports that could support the reconstruction and development of the Gaza 1

2 Strip. Regular demolitions of donor-funded infrastructure during conflicts has contributed to the reluctance of donors to invest in Gaza, pending an agreement on permanent issues such as accountability of parties to the conflict to protect social and economic infrastructure and increased movement of goods and people. The impact of the conflict on particular groups of the population intersects with a range of gender based vulnerabilities. The intra-palestinian divide and the limited authority exercised by the Palestinian authority in Gaza, Area C and East Jerusalem also compounds gaps in legal protection for women living in those areas. A gender analysis of needs resulting from the protracted crises in Palestine across clusters, points to five types of vulnerabilities that generate differentiated needs of men, women, boys and girls and present different barriers to accessing humanitarian assistance and protection. These include: Patterns of protection violations, Livelihood related vulnerabilities, Vulnerabilities related to gender division of labour, Preexisting discriminatory norms, and Vulnerabilities related to the possibility of gender bias in the design of humanitarian assistance i. The HCT has been closely supported through the HPC processes by a gender adviser seconded to OCHA opt. The gender adviser provides technical guidance and support to clusters and the overall humanitarian community on gender equality programming; supports integration of gender dimensions in information, analysis and programming; and capacity building in gender, among other things. With all the above said, as the occupying power, the State of Israel has an obligation to protect the Palestinian population and to administer its occupation in a manner that protects their rights and ensure that their well-being in accordance with IHL. This is not the case in Palestine, as the Israeli political narrative denies the applicability of IHL by saying that Palestine is a disputed land and even claims that Gaza is no longer occupied since late 2005 with the Israeli unilateral disengagement. 1.1 Geographical areas and affected population The affected population are 4.8 million Palestinians, among them 2.3 million in need for humanitarian assistance. The largest numbers in need are in the Gaza Strip (1.3 million people or 70 percent of the Gaza s population). 100,000 people (17,817 families) ii are still displaced in Gaza from the 2014 conflict and are currently living with host families, rented apartments, prefabricated units, or in the rubble of their previous homes iii. HRP has identified 1.7 million as target for humanitarian assistance in Gaza, Area C, the Seam Zone and East Jerusalem. 1.2 Risks and threats The current political situation in Israel/Palestine remains deadlocked with little cause for optimism despite a recent visit of US State Secretary John Kerry. The Palestinian divide between Fatah and Hamas remains despite the formation of the national consensus government. Escalation of violence which is labeled by some as the start third uprising (Intifada) is very much in the making as East Jerusalem and many parts of the West Bank are experiencing an increased level of violence since October 01, The Palestinian people remain affected by Human Rights and International Humanitarian Law violations and lack of protection. Although all parties to the conflict are bound by international law, violations of IHL include the complete blockade on the Gaza Strip for the ninth year in a row, restrictions on movement, and exploitation of natural resources. These violations contribute to a coercive environment and progressive isolation and the forcible transfer of the Palestinian population, in breach of the Geneva Conventions iv. Implementation of humanitarian programmes in Gaza, Area C, the Seam Zone and East Jerusalem continues to be hindered by restrictive access policies. High levels of food insecurity are expected to prevail in Gaza and the West Bank and the continued Israeli restrictions will create more dependency on international assistance. The situation will remain as such for the foreseeable future due to lack of effective political will by third states to ensure the implementation of international law by Israel in Palestine. 1.3 Strategic objectives identified in the Strategic Response Plan The goal of humanitarian assistance in Palestine is to protect the rights of vulnerable Palestinians, provide access to basic services for those who are acutely vulnerable and support the ability of households to cope with prolonged stresses to prevent a further deterioration in their situation, until more sustainable solutions are made possible. Three strategic objectives have been identified plus cross cutting themes that include: 2

3 1. The rights of Palestinians under occupation are protected in accordance with IHL and IHRL Violations of international humanitarian and human rights law are at the heart of the Palestine crisis, and are the main driver of humanitarian vulnerability of Palestinians, providing the entry point for the response across clusters. The aim of this objective is to enhance protection by promoting respect for IHL and IHRL, promoting accountability and mitigating the impact of violations. All Palestinians in Occupied Palestine are affected by the protection crisis in some way, however, direct interventions will focus on those identified as most vulnerable and in need of protection assistance. 2. Ensure acutely-vulnerable Palestinians under occupation in Gaza and the West Bank have access to essential services where the occupying power fails to provide for the wellbeing of the population of the occupied territory it is incumbent on humanitarian actors to do so. In this spirit, a number of Palestinians in the Gaza Strip, Area C of the West Bank, and East Jerusalem are considered highly vulnerable and in need of access to basic services, including education, health, WASH and adequate shelter. In the Gaza Strip, the blockade and internal Palestinian political divide have additionally led to a serious deterioration in the level of basic services. Interventions under this objective seek to ensure services are provided to those who are deemed the most vulnerable due to the fact they are most exposed to policies and practices related to the occupation and blockade or most affected by those policies taking into account gender and age vulnerabilities, while continuing to advocate for the need for the occupying power to undertake its responsibilities in accordance with IHL. 3. Strengthen the ability of acutely-vulnerable Palestinian households to cope with protracted threats and shocks. As a result of the prolonged nature of the occupation of opt, the 8 year blockade on Gaza and a sequence of three major outbreaks of hostilities in Gaza, the underlying vulnerability of Palestinians under occupation is growing. Palestinian households are struggling to cope with prolonged stresses to their livelihoods as a result of the chronic impact of conflict and occupation on the economy and their access to resources, while also leaving them further susceptible to the impact of sudden shocks such as spikes in conflict in Gaza, demolitions in the West Bank, and natural hazards, such as winter storms, floods and earthquakes due to an already depleted capacity to cope. Some of the cross-cutting themes include, Gender, Community engagement to enhance accountability towards affected populations (AAP) and to improve the quality and effectiveness of the humanitarian assistance provided to Palestinians in the opt, in accordance with the Inter-Agency Standing Committee s commitments to promoting accountability towards affected populations, disaster risk reduction, the humanitarian situation in opt is characterized as a protracted protection crisis with a history of reoccurring conflict related episodes generating direct and severe humanitarian needs; to which a range of different natural hazard can be added, and finally paving the way for more sustainable solutions (transition): Working in a way to promote transitions to sustainable paths to recovery and resilience cuts across the three strategic objectives and informs the way relevant activities under each of the objectives are delivered. It is worth noting that Sweden has been very active in the HCT meeting with the idea to promote resilience and transition. Sweden, Norway, and Austria are already supporting a transition facility called the Community Resilience and Development Programme (CRDP) for Area C administered by UNDP. Taking into account national and international long-term development strategies, particular attention has been paid to avoid gaps, overlaps and duplications between the HPC 2016 and its Humanitarian Response Plan (HRP), the Palestinian National Development Plan (PNDP), reconstruction plans for Gaza and the United Nations Development Action Framework (UNDAF), notwithstanding that some HRP interventions may help in paving the way for long-term development. 2. IN COUNTRY HUMANITARIAN CAPACITIES 2.1 National and local capacities and constraints The Palestinian Government has made significant progress in regard to institution building and the development of a sustainable Palestinian economy and has articulated a National Development Plan (PNDP) for 2014 to 2016, with focus areas that include governance, social sector, economic sector, and infrastructure. Due to restrictions imposed by Israel, the Palestinian Government is still unable to exert full 3

4 administrative control (including programming) over Gaza, Area C, the seam zone, and East Jerusalem, which all together represent the major part of the opt and majority of the population. Following the latest conflict in Gaza Operation Protective Edge in 2014, the Palestinian Government launched the 100 days plan for early recovery activities which includes relief activities as well as the early recovery and reconstruction plan which was presented at the Cairo donor conference on 12 October Due to lack of progress in the implementation of the national consensus government and the blockade, this plan has not been implemented properly following Operation Protective Edge, thus further compounding the ordeal of the Gaza population. The national civil society s humanitarian community has the capacity to respond to humanitarian needs in addition to Palestine Red Crescent Society (PRCS). Unfortunately, it was reported that only 3% of the 2015 SRP went straight to the implementation of Palestinian NGO s and the rest went to UN agencies and International NGO s. Members of the Advisory board of the humanitarian Pool Fund locally made good progress to encourage more local NGO s to apply. Since the beginning of 2015, HPF in opt has received 40 project proposals in which 16 projects have been approved to address the urgent needs of Emergency Shelter & NFI, Food Security, Health, WASH, Protection and Education in the West Bank and Gaza Strip. Of the projects approved, five projects were implemented by INGOs, six projects implemented by National NGOs, in addition to five projects implemented in partnership between National and International NGOs. 2.2 International operational capacities and constraints There are some 100 INGOs and 19 UN agencies responding to humanitarian needs. The Humanitarian Country Team (HCT), established in the opt in 2008, and coordination arrangements were formalized in March 2009, following a decision between the Emergency Relief Coordinator (ERC) and the Inter-Agency Standing Committee (IASC). OCHA facilitates the work of the Inter-Cluster Coordination Group (ICG) that consists of six clusters/sectors, as follows: Protection Cluster, Food Security Sector, Education Cluster, WASH Cluster, Health Sector and Shelter Cluster (the Gaza Strip and the West Bank). The Logistics Cluster was activated during the Gaza emergency for a period of two months and then de-activated as per HCT decision. The ICG also works in the preparation of the contingency plan and preparedness measures. OCHA has been preparing the Humanitarian Programme Cycle on behalf of the HCT (since 2003), mobilizing humanitarian funding from the Central Emergency Response Fund (CERF), and acting as the manager of the ERF on behalf of the HC. Both the CERF and ERF, under the RC/HC s leadership, have track records of supporting recurrent emergencies linked to hostilities and extreme weather events. A good coordination structure exists in opt among donors, PA, UN, INGO s and LNGO s. Sida is of the opinion that the cluster coordination needs to be strengthened better in opt especially in Gaza. ECHO and Sweden as chair and co-chair of the local GHD group, have approached OCHA to see if they participate as observers in HCT or cluster meetings and has finally succeeded. Echo, Sweden, USAID, and Switzerland have taken part in different HTC meetings and workshops. The humanitarian leadership changed in A new RC/HC Robert Piper together with a new head of OCHA David Cardey has started and demonstrated a good leadership so far. Sida has different partners who are present in the country, like the WE EFFECT (former Swedish Cooperative Centre), Diakonia, Islamic Relief-Gaza, and the Christian Council of Sweden through local national coordinator in Jerusalem. Sida s/hum framework partners like NRC, Swedish Red Cross, MSB either have some presence or are very much engaged from HQ. Support to the SEAPPI programme 2016 onwards will move as part of a global application with the Swedish Mission Council. 2.3 International and Regional assistance The UN 2015 Humanitarian Strategic Response Plan (SRP) amounts to $705 million (compared to $390 million in 2014) of which $324 million are dedicated to food assistance/social safety nets and $225 million for shelter assistance. This is the third largest ever appeal launched for Palestine since the first CAP was launched in To date, 344,1 million has been funded representing 49% of the Appeal. Table 1: Total funding per donor to projects listed in the 2015 Appeal as of 30 th November

5 Donor Funding USD % of Grand Total United States 207,403, % Japan 41,178, % Saudi Arabia 38,074, % Germany 35,987, % Switzerland 22,643, % European Commission 21,890, % Belgium 16,682, % Sweden 13,281, % The Humanitarian Response Plan 2016 presents a strategy budgeted at $571 Million to implement 206 projects presented by 79 organizations (12 UN agencis; 31 from local NGOs, and 36 from international NGOs). As far as the planned donor support for 2016, information is not available at the moment but ECHO has shared with Sweden the information that it maintains its humanitarian support to opt at 25 million Euros in 2016, which is the same as last year. 3. Sidas HUMANITARIAN RESPONSE PLAN 3.1. Sida s role Sida is the co-chair of the locally established GHD group with ECHO. Sweden is an active member of the humanitarian task force as well as the review board/advisory of both Community Resilience & Development Program (CRDP) transition facility as well as Emergency Respond Fund (ERF). Sida s aim is to influence the strategic discussions with the HCT team as well as Palestinian Government especially on resilience and transition. Recent evaluations of individual Sida supported programs motivate continued support to humanitarian interventions as long as the political situation is not changed on the ground. Much of the achievements and lessons learned in the HPC 2015 refer to inputs, indicators, targets and number of activities as it is difficult to report on proper results, especially when the main objectives of the SRP are protection and food security. Still, several of Sida s partners showed good examples of results Response Priorities 2016 The main key response priorities will focus on protection (IHL) with some material protection. The protection criteria rank high in the context of a prolonged Occupation and lack of respect to IHL and Human Rights. Besides stonger focus on protection, Sida s support will address emergency preaparedness, response and humanitarian advocacy. Stronger linkages between humanitarian, recovery and development will continue to be a priority for Sida s work in the opt. Linkages between humanitarian and development is being put to the test with the Sida support to the CRDP facility. Also Sweden has supported transitional shelter through the cash assistance programme since 2014 through UNDP for non-refugees. The total amount thus far has reached over 80 MSEK (25,900,000 SEK in 2014 and 55,000,000 SEK in 2015). Sweden continues to assist OCHA in recruiting new donors to HRF while keeping present ones. Sweden will continue to be active in GHD meetings being the current co-chair Partners Recommended partner for Sida support 2016 Sector/focus of work Proposed amount for 2016 MSEK UNRWA Emergency Appeal/Multi Sector 30 OCHA Coordination 1 OCHA/CBPF Multi Sector 5 Swedish Red Cross Heath/increase resilience to disasters 4 ICRC Protection 10 Swedish NGO s/others 5

6 Diakonia Protection/IHL Palestine & Israel 4 Islamic Relief Sweden/ IR Emergency JCP-Gaza for young 10 Gaza graduates, farmers and fishermen IDP s Christian Mission Council in Protection opt/israel 6 partnership with Christian Council of Sweden (SEAPPI) NRC Protection/Counselling and legal assistance (ICLA) 5 TOTAL: 75 MSEK Sources i HNO opt draft P.10. ii Source: Shelter Cluster. iii Ocha, humanitarian bulletin, May iv Rule of Law: A Veil of Compliance in Israel and the opt Diakonia. Global Appeal 2016, International Committee for the Red Cross Humanitarian Needs Overview 2016, UN/OCHA Humanitarian Implementation Plan 2016 for Palestine, ECHO 6