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Georgia – Complex Emergency
While on a two-day trip to assess the U.S. humanitarian response to the situation in Georgia, USAID Administrator Henrietta Fore met with President Mikheil Saakashvili in Tbilisi.
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October 31, 2008
Background
In early August, heightened tensions led to armed conflict involving Georgian and Russian armed forces and South
Ossetian separatist forces, affecting populations in South Ossetia, Abkhazia, and additional areas within Georgia and
along the Georgia–Russia border. On August 13, the Government of the Russian Federation (GORF) and the
Government of Georgia (GOG) signed a ceasefire agreement, and Russian troops withdrew in late August from
locations across Georgia. However, through September, Russian forces remained in a buffer zone along the
administrative boundary of South Ossetia, encompassing a network of villages with an estimated population of 24,000.
The GORF, the GOG, and non-governmental organizations (NGOs) estimated the number of deaths due to the conflict
between 300 and 1,800 people. In October, the U.N. estimated the conflict displaced approximately 30,000 persons
within South Ossetia, more than 135,000 individuals within other parts of Georgia, and an additional 35,000 South
Ossetians who crossed the Russian border into North Ossetia.
On August 9, U.S. Ambassador John F. Tefft declared a disaster due to the effects of armed conflict in Georgia. In
response, USAID/OFDA provided an initial $250,000 through the U.S. Embassy in Tbilisi to procure emergency relief
supplies for approximately 10,000 people. In addition, USAID/OFDA deployed a USAID Disaster Assistance
Response Team (USAID/DART) to Tbilisi to conduct humanitarian needs assessments, coordinate with the GOG and
relief agencies, and inform further USAID assistance priorities. At the peak of the emergency, the USAID/DART
consisted of 18 members, including administrative, programming, and technical sector specialists. Following the
demobilization of the USAID/DART, USAID/OFDA deployed a Tbilisi-based emergency disaster response coordinator
to continue early recovery initiatives, conduct field assessments in affected regions, and facilitate coordination and
information sharing. USAID/OFDA has provided more than $19.1 million to date in response to the crisis, assisting
conflict-affected populations with emergency relief commodities, nutrition, protection, shelter, food security and
agriculture, and water, sanitation, and hygiene interventions. To date, the U.S. Government (USG) has provided
approximately $55 million in humanitarian assistance to Georgia, including more than $16.3 million from the U.S.
Department of State (State) and nearly $17.5 million from the U.S. Department of Defense (DOD).
10/31/08: Situation Report #1 (pdf, 52kb)
10/31/08: Map #18 (pdf, 1.6mb )
| NUMBERS AT A GLANCE | SOURCE |
|---|
| Internally Displaced Persons (IDPs) at Height of Crisis | 135,000* | OCHA1 - October 2008 |
| Returnees to parts of Georgia** | 99,500 | OCHA – October 2008 |
| Population Displaced for Long Term*** | 36,000 | OCHA – October 2008 |
FY 2008 AND FY 2009 HUMANITARIAN FUNDING PROVIDED TO DATE
| USAID/OFDA Assistance to Georgia |
$19,110,302 |
| USAID/FFP Assistance to Georgia2 Assistance to Georgia |
$2,103,200 |
| State/EUR/ACE Assistance to Georgia 3 |
$3,487,583 |
| State/PRM Assistance to Georgia4 Assistance to Georgia |
$8,319,204 |
| State/PM Assistance to Georgia4 Assistance to Georgia5 |
$4,500,000 |
| DOD Assistance to Georgia |
$17,486,434 |
| Total USAID, State, and DOD Humanitarian Assistance to Georgia |
$55,006,723 |
* The estimate does not include the estimated 30,000 people displaced within the disputed area of South Ossetia, and an additional 35,000 people from South Ossetia who fled into the
Russian region of North Ossetia.
** This figure does not capture returnees within South Ossetia. This represents the total number of the 135,500 internally displaced persons (IDPs) in other areas of Georgia who have
returned to areas of origin.
*** Estimate of IDPs displaced in August 2008 and unable to return home in the medium to long term
1 U.N. Office for the Coordination of Humanitarian Affairs (OCHA)
2 USAID’s Office of Food for Peace
3 U.S. Department of State Office of the Coordinator of U.S. Assistance to Europe and Eurasia (State/EUR/ACE)
4 U.S. Department of State’s Bureau of Population, Refugees, and Migration (State/PRM)
5 U.S. Department of State’s Bureau of Political-Military Affairs (State/PM)
CURRENT SITUATION
In early October, the European Union (EU) deployed 200
monitors to observe Russian troop withdrawal. By
October 8, Russian forces had withdrawn from Georgian
territories outside of South Ossetia and Abkhazia. On
October 15, the EU, U.N., and Organization for Security
and Cooperation in Europe co-chaired talks for senior
Russian and Georgian officials. The discussions, which
focused on creating a negotiating process to resolve
outstanding issues, including the rights of tens of
thousands of refugees, are scheduled to resume in
November.
Access
Humanitarian access to conflict-affected populations in
South Ossetia remains constrained for most emergency
actors, although the International Committee of the Red
Cross (ICRC) was able to obtain access in early
September. In October, ICRC reported that lack of
security, isolation due to severing of road links, and
limited access to food and health care remain an issue for
the local populations, particularly for the elderly and rural
populations.
Donor Conference
On October 22, the European Commission and World
Bank held a conference in Brussels. Donors pledged
approximately $4.5 billion to meet urgent post-conflict
and priority investment needs between 2008 and 2010.
Donors allocated approximately $450 million for IDP
support and to repair damaged infrastructure. According
to an October U.N. and World Bank Joint Needs
Assessment (JNA) and revised consolidated appeal,
immediate challenges include ensuring adequate shelter,
access to health and education services, and appropriate
social protection to the estimated 220,000 pre-2008 and
new IDPs.
Population Movement and IDP Returns
According to the U.N., restricted access to affected areas,
spontaneous population settlements with host
communities, and an ongoing return process have
complicated IDP assessments. OCHA estimated 75,000
IDPs in Georgia had returned to areas of origin by the
end of September. The withdrawal of Russian troops
from the buffer zone resulted in an additional 24,500 IDP
returns in October. As a result of increased returns and
IDP relocation to collective centers, the Office of the
U.N. High Commissioner for Refugees (UNHCR) closed
the Gori IDP camp in October.
To date, the GOG estimates 36,000 people remain
internally displaced. Of remaining IDPs, the GOG plans
to accommodate 24,000 individuals by the end of 2008 in
durable housing. USAID/OFDA-funded programming
has focused on supporting IDPs residing in collective
centers and with host families.
Emergency Relief Supplies
By the end of FY 2008, the USAID/DART had
distributed more than 1 million units of USG-provided
commodities through U.N. agencies and NGO partners to
conflict-affected Georgians. USAID/OFDA supplied
9,900 regionally-procured mattresses, 26,422 hygiene
kits, and 6,050 blankets from the USAID/OFDA
warehouse in Pisa, Italy, valued at more than $611,000,
including transport. USAID/OFDA relief commodities
and logistics assistance included the local transportation
and distribution of USG humanitarian assistance to IDP
families, valued at nearly $3.5 million.
In addition, USAID/OFDA supported the local
distribution of commodities transported as part of a U.S.
European Command (EUCOM) airlift and through three
U.S. Navy and U.S. Coast Guard shipments. Between
August 13 and September 4, DOD conducted 59
humanitarian missions, delivering relief commodities
from State and DOD warehouses in Germany and
USAID stockpiles in Italy through EUCOM. DOD
delivered a total of 356,380 humanitarian daily rations,
154,368 meals-ready-to-eat, 10,432 cots, 19,184 sleeping
bags, 26,422 hygiene kits, 9,254 blankets, 6,040 sheets,
3,431 mattresses, 653 boxes of medical supplies, and
other relief commodities.
The Department of State and DOD also responded to
immediate emergency needs for conflict-affected
populations. The U.S. Embassy in Tbilisi released prepositioned
disaster packages, including medical supplies,
tents, blankets, bedding, hygiene items, and clothing.
State/EUR/ACE provided emergency relief commodities
from storage warehouses in Germany. State/PRM
contributed through U.N. agencies for IDP and refugee
assistance.
According to USAID/OFDA-funded partner Première
Urgence’s October assessment, wood stoves provide the
main form of heating and cooking in buffer zone
communities near the border of South Ossetia. Prior to
the conflict, residents purchased vouchers for forest
access and utilized wood from South Ossetia for fuel.
However, the conflict restricted access to wood
resources, creating vulnerabilities for the forthcoming
winter. In response, USAID/OFDA committed more
than $590,000 to CARE and nearly $390,000 to Mercy
Corps for the purchase and distribution of stoves,
firewood, winter clothing, blankets, and heaters in FY
2009.
Agriculture and Food Security
The JNA noted that agriculture is the basis of the
economy of the most conflict-affected region, Shida
Kartli. The conflict resulted in significant losses in
agricultural production in the region. According to a
September U.N. World Food Program (WFP)
assessment, IDPs in collective centers lacked assets and
livelihoods opportunities, resulting in a dependency on
governmental and non-governmental aid.
In response to concerns over food security,
USAID/OFDA provided nearly $113,000 for an
agriculture and food security needs assessment in
conflict-affected areas. A USAID/OFDA livelihoods
specialist deployed to Georgia in mid-September to
coordinate the implementation of a livelihoods strategy
with USAID/Georgia. The strategy focused on restoring
household purchasing power and replacing or repairing
productive assets of IDPs and conflict-affected
populations.
In FY 2009, USAID/OFDA provided $500,000 to
support the livelihoods initiative. To support food
security initiatives, USAID/OFDA committed $2.9
million to the Citizens Network for Foreign Affairs
(CNFA) to supply farmers with seeds and farming
machinery for the winter growing season.
Shelter and Settlements
In October, Première Urgence reported urgent IDP
humanitarian needs for winter. The assessment noted the
onset of winter in the region is marked by heavy snow
and extreme cold. On October 6, a revised U.N.
consolidated appeal noted an estimated 35,000 persons
required winterization activities, including 15,000 IDPs
that host families can no longer accommodate. These
IDPs do not have sufficient funds to rent new
accommodations, and the U.N. expects them to move to
collective centers in the near future.
To address the shelter needs of an estimated 54,000 IDPs
through the winter, USAID/OFDA has worked closely
with other donors, the GOG, and UNHCR to develop a
strategy for temporary and longer-term shelter solutions.
Short-term shelter assistance, targeting approximately
7,000 IDP households, has emphasized support of hosting
arrangements.
In FY 2008, USAID/OFDA provided more than $5.1
million to International Relief and Development (IRD)
and CHF International for emergency shelter activities in
support of the overall GOG IDP settlement plan,
including home repairs and upgrades. In FY 2009,
USAID/OFDA committed more than $1 million to CARE
for shelter materials needed to winterize collective
centers and damaged houses for approximately 2,600
IDPs in Shida Kartli Region.
Food Assistance
On September 18, WFP reported that IDPs are nearly
fully dependent on governmental and NGO assistance.
Emergency food aid has satisfied short-term needs, but a
lack of cash resources and an uneven and insufficient
supply of complementary foods have resulted in low
dietary diversity. The U.N. expects that up to 110,000
people will need basic and complementary food rations or
cash transfers through March 2009.
USAID/OFDA has contributed $1.5 million to WFP for
procurement of approximately 1,100 metric tons (MT) of
basic food commodities and distribution of food and
emergency relief items for IDPs. USAID/OFDA has
provided more than $600,000 to NGOs through
USAID/Georgia for food commodities to support IDPs.
In FY 2009, USAID/FFP provided 1,550 MT of food
commodities valued at more than $2.1 million through
WFP. To date, the USG has provided approximately
$4.2 million in food assistance to Georgia.
Protection
Despite ongoing psychosocial support to vulnerable
populations by the GOG and NGOs, nearly 68 percent of
IDPs exhibited post-traumatic symptoms according to a
September to October Georgian Society of
Psychotrauma assessment.
In response, the GOG, NGOs, international
organizations, universities, and health care institutions
held a conference on psychotrauma in Tbilisi during
October. Conference attendees recommended local
experts support sustainable psychosocial assistance
services for traumatized communities. In addition,
representatives noted that indirect assistance activities,
such as primary care personnel training, support for selfhelp
groups, and community mobilization activities,
would enable programs to reach more individuals. On
October 21, the U.N. World Health Organization
organized a seminar on organizational aspects of
psychosocial care in Georgia. Attendees discussed the
importance of psychosocial trainings, the standardization
of assessment tools and curricula, and the need to
include the old IDP caseload in current assistance.
In response to psychosocial needs, a USAID/OFDAfunded
program is promoting the psychosocial wellbeing
of IDPs through child-friendly spaces, youth
activities, and psychosocial training for teachers,
benefiting 23,000 people in up to 47 collective centers in
Gori and Tbilisi.
Water, Sanitation, and Hygiene
USAID/OFDA contributed $750,000 to the U.N.
Children’s Fund (UNICEF) to support hygiene
promotion activities in collective centers housing IDPs.
In addition, USAID/OFDA funded efforts by the
International Rescue Committee (IRC) to improve the
health and wellbeing of conflict-affected populations
through the provision of water and sanitation facilities
for IDPs in collective centers.
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