In a report, “Band Aids and Beyond” published today to coincide with the 25th anniversary of the Ethiopia famine, Oxfam says international donors need to adopt a new approach to humanitarian disasters which focuses on preparing communities to prevent and deal with disasters such as drought before they strike, rather than relying mainly on short-term emergency relief, such as imported food aid.
Twenty-five years ago Ethiopia was struck by one of the worst famines in its history. An estimated one million people died and millions more suffered from extreme hunger and malnutrition. Today, millions in Ethiopia and across East Africa are facing severe food and water shortages after years of poor rains. It is estimated that drought costs Ethiopia $1.1bn a year—almost eclipsing the total annual overseas assistance to the country.
Currently, 70 percent of humanitarian aid to Ethiopia comes from the United States. Out of the $3.2 bn of US humanitarian assistance to Ethiopia since 1991, 94 percent has been in the form of food aid – almost all of it sourced from within the US rather than purchased locally or regionally. Most US food aid has conditions applied to transport and packaging, which can cost up to $2 of US taxpayers’ money to deliver $1 of food aid.
Penny Lawrence, International Director for Oxfam, who has just returned from visiting Oxfam projects in Ethiopia, said:
“We cannot make the rains come, but there is much more that we can do to break the cycle of drought driven disaster in Ethiopia and the Horn of Africa. Food aid offers temporary relief and has kept people alive in countless situations, but does not tackle the underlying causes that continue to make people vulnerable to disaster year-after-year.
“Donors need to shift their approach, and help to give communities the tools to tackle disasters before they strike. Drought does not need to mean hunger and destitution. If communities have irrigation for crops, grain stores, and wells to harvest rains then they can survive despite what the elements throw at them.”
It is essential that donors rise to the challenge and provide adequate funding for emergency assistance for this year’s crisis—current response by international donors is far below requirements estimated by Governments and UN agencies. But in this report, Oxfam argues that it is equally essential that donors do more to back programs that manage the risk of the disaster before it strikes, such as early warning systems, creating strategically positioned stockpiles of food, medicine and other items, and irrigation programs.
For instance, in Somali region Oxfam is building birkhads, or protected wells, to enable communities to ‘harvest’ rain during the rainy season to make sure there is more water available nearby when the rains stop. These types of programs receive just 0.14 percent of overseas aid. Yet, the agency says, that it is a more sustainable approach, as the emergency response is designed to contribute to development and keep communities safer in the years to come. This approach is cost-effective: for every $1 invested in this approach, $2-4 are returned in terms of avoided or reduced disaster impacts.
The call for donors to shift their approach comes as Ethiopia faces ever-greater threats from natural disasters. Climate scientists predict that by 2034, the 50th anniversary of the 1984 Ethiopia famine, what are now droughts will become the norm, hitting the region three years out of every four. A shift of approach is needed to prevent climate shocks developing into disasters which will push more people into poverty.
Lawrence said: “Climate change makes the urgency of this approach greater than ever before. Ethiopians on the frontline of climate change cannot wait another 25 years for common sense to become common practice.”
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"Rebuilding USAID is critical to effective delivery of US foreign assistance to fight poverty—which is recognized as key to America's strategic and security interests. We are working hard to build momentum to get reform passed this year." said Raymond C. Offenheiser, president of Oxfam America.
"Over the last two decades, USAID has had its legs cut out from under it—its resources and staff have been slashed while more development capacity has been shifted to the Department of Defense. Along with rebuilding USAID, the US must shift its focus from development projects that meet short-term political and security goals back to long term development goals that not only help more people escape poverty, but in the long run, create greater stability and good will for the US. Rebuilding USAID gives the US and its development policy a start down the right path."
Currently, USAID has little capacity to strategize and create comprehensive development plans for the countries in which it operates says Oxfam. The bill addresses this issue by establishing USAID mission directors as responsible for coordinating all development and humanitarian assistance efforts in the field, under guidance of the Chief of Mission.
"This bill is a welcome move by Senator Kerry to help reinvigorate US foreign assistance," said Offenheiser. "Kerry is creating a scenario that will allow USAID development professionals to do what they do best—work closely with local communities and governments to deliver long-term programs that help to alleviate poverty and build prosperous communities."
"Transparency is also key to getting the most out of US development aid. Without good information, recipient governments can't plan, poor people can't hold their governments accountable, and the US taxpayers can't see results. Development professionals, aid recipients and US taxpayers need to see exactly where money is going and what the expectations are, so that there is greater accountability and success. Success means more positive change in the lives of poor people."
Key themes addressed by the new legislation include rebuilding USAID's capacity to think and implement strategically; giving the agency new tools to measure, evaluate and innovate to achieve smart development; promoting transparency and flexibility; and investing in human capital.
The aid reform debate in Washington has gained momentum in the last few months. Secretary of State Clinton recently announced that the State Department and USAID will be undertaking America's first-ever Quadrennial Diplomacy and Development Review (QDDR), in order to streamline the aid system and to put development on par with national security and diplomacy in foreign policy debates and decisions. In Congress, House Foreign Affairs Committee Chairman Howard Berman (D-CA) has introduced the Initiating Foreign Assistance Reform Act of 2009 (HR 2139), which has more than 90 bipartisan co-sponsors.
]]>In a panel co-hosted by Oxfam America and Foreign Policy, journalist Andrew Mwenda of Uganda, Reconstruction Minister O. Natty B. Davis, II of Liberia, and environmental activist Wore Gana Seck of Senegal urged U.S. leaders to make U.S. foreign assistance more supportive of effective states and active citizens. In particular, the panelists called for a U.S. aid approach that is more transparent, more consistent with the needs of citizens and local governments, and more focused on giving recipient states the power to manage their own development.
"Getting to better development assistance will require that donors such as the U.S. keep a close eye on the critical task of building government capacity and institutions directly," said O. Natty B. Davis, II, Reconstruction Minister of Liberia. "This will ensure the efficacy of aid and its ability to deliver results that can have a real impact on the lives of the people in these countries in as short a time as possible."
The panel reflected growing momentum in the foreign aid reform debate in the U.S. Before leaving for Ghana, President Obama was quoted in an AllAfrica.com interview saying, "Our aid policies have been splintered among a variety of agencies... Trying to create something steady [and] basing our policies on what works and not on some ideological previous position—is going to be very important."
Last Friday, Secretary of State Clinton announced that the State Department and USAID will be undertaking America's first-ever Quadrennial Diplomacy and Development Review (QDDR), in order to streamline the aid bureaucracy and insert development more coherently into debates over national security and foreign policy. In Congress, House Foreign Affairs Committee Chairman Howard Berman (D-CA) has introduced the Initiating Foreign Assistance Reform Act of 2009 (H.R. 2139), which has more than 75 bipartisan co-sponsors.
"It is a good sign that the administration and congress are talking about development in a strategic way," said Paul O'Brien, Director of Aid Effectiveness at Oxfam America and one of today's panelists. "But if new strategies are going to deliver for the world's poor, they must be poverty focused. Effective development isn't about fixing short-term political or security problems—it is about putting people in charge of their own lives. The best signal the U.S. can send to show it is serious about development is to nominate a USAID Administrator who will help rebuild the agency and bring back its capacity to be a true partner in development."
]]>"President Obama's historic visit to Ghana, so early in his presidency and on the heels of important commitments at the G8 in Italy, signals the importance of African development to US interests," said Raymond Offenheiser, President of Oxfam America. "President Obama gets it. He understands that without a strong civil society, and capable, transparent governance, efforts to fight poverty and bring about social justice in Africa will at best be incremental. Good governance and sustainable use of resources will inspire more effective international assistance and increase trade."
President Obama had several recommendations that will help Africa on the road to prosperity. Here are a few of the highlights from the speech:
"In the 21st century, capable, reliable, and transparent institutions are the key to success—strong parliaments; honest police forces; independent judges; an independent press; a vibrant private sector; a civil society. Those are the things that give life to democracy, because that is what matters in people's everyday lives." These are all important parts of a thriving democracy, and President Obama made clear in his speech that these should be a priority in Africa just as they should be on every other continent. Building strong institutions that protect the rights of citizens, and allow business and entrepreneurs to flourish, will encourage investment in Africa. Oxfam is focused on helping civil society organizations work to hold their governments accountable. Examples include our partnerships with groups promoting new laws that accord equal rights to women and girls in southern Africa, and a region-wide proposal for uniform laws governing the mining industry in West Africa.
"So in Ghana, for instance, oil brings great opportunities, and you have been very responsible in preparing for new revenue. But as so many Ghanaians know, oil cannot simply become the new cocoa... Dependence on commodities—or a single export—has a tendency to concentrate wealth in the hands of the few, and leaves people too vulnerable to downturns." Resources like gold, diamonds, and oil can bring enormous wealth and potential for development. The road to prosperity will require leaders to avoid the path of poor management, corruption, violence and war. Ghana is a promising example of what is possible: Since Ghana discovered oil near its coast, the country's President John Atta Mills pledged earlier this year to disclose all petroleum agreements, so citizens can track what money comes to the government and how revenues are spent. This pledge has not yet been turned into reality. Real transparency needs to be built into a new legislative framework for how Ghana's new oil wealth will be managed, to ensure revenues are spent on social services and poverty reduction. Oxfam is working with the US Congress on legislation to require all US and foreign companies subject to Securities and Exchange Commission rules to disclose payments to developing country governments. This will be a critically important tool for citizens working to avoid corruption and waste of natural resource revenues.
President Obama also highlighted steps that the US would take to help combat corruption, including addressing corruption in the annual State Department human rights report, a recommendation that was made by Oxfam America in its Presidential transition memos.
"Aid is not an end in itself. The purpose of foreign assistance must be creating the conditions where it's no longer needed." The United States needs to make a number of key reforms to make our foreign aid system as effective as possible in reducing poverty and creating prosperous communities throughout the developing world. The US lacks a coherent strategy for global development. Oxfam is calling on the US to keep recipient country governments and their public informed on the nature and amount of American aid, and let each recipient country lead its own development agenda. President Obama's focus on using aid to defeat poverty is on the right track—one that we hope will lead to a new strategy for global development and a reinvigorated, effective aid system that will also rebuild US leadership in the world.
"A warming planet will spread disease, shrink water resources, and deplete crops, creating conditions that produce more famine and more conflict." Climate change is already affecting the lives and livelihoods of millions of poor people in Africa, as a recent Oxfam report detailed. Tackling these impacts is essential to addressing food security and broader development objectives. President Obama must commit to help bring about a comprehensive global climate strategy that will help poor communities cope with failed crops, dwindling reserves of clean water, and displacement caused by extreme weather events. The US and other wealthier countries must curb their greenhouse gas emissions to prevent climate chaos and provide adequate financial assistance to help African countries adapt in greener and more sustainable ways.
"Now, America can also do more to promote trade and investment." The economic welfare of Americans is inextricably linked with the well-being of people across the globe. While our foreign policy seeks to address the problems of poverty, disease and lack of economic opportunity, our trade policy has often exacerbated them, by demanding greater access to export markets in the poor countries, more favorable rules for US investors that can lead to greater poverty and inequality, and limiting access to affordable medicines. President Obama must develop a new trade policy with economic development as a core objective, spreading the benefits of trade as widely as possible, in the developing world as well as in the United States. This must include focusing efforts on the multilateral trading system to achieve a successful conclusion of the Doha Development Round, while working with Congress to pass legislation providing for duty-free and quota-free market access for all Least Developed Countries (LDCs).
]]>Legal services for the disadvantaged did not exist in Cambodia until a decade ago. With the change in government in 1998, the US began to support efforts to strengthen civil society. While other donors focused on improving the judiciary and other state institutions with little measurable impact, the US backed many nongovernmental organizations (NGOs) working on human rights, rule of law, and government accountability. Many believe that the continued involvement of the US in civil society is critical to avoiding potential setbacks in Cambodia's young democracy.
The US Agency for International Development (USAID) knows that empowering citizens to secure their rights is fundamental in breaking free from poverty. In 1996, USAID helped to found one of the first legal resource centers in Cambodia, the Community Legal Education Center (CLEC). Now a nationally registered NGO, and still supported by USAID, CLEC educates communities and government officials on citizens' legal empowerment and advocates reforms to protect citizens' rights. In part because of USAID's long-term support for CLEC, the center has evolved into an effective NGO capable of taking on sensitive, high-profile "land grabbing" and illegal eviction cases. CLEC has a unique two-part strategy: it selects legal cases that have the potential to generate wide publicity and debate, and it also demands broader accountability and respect for legal norms in Cambodian society as a whole.
This approach was effective when one Phnom Penh community facing forced eviction sought CLEC's help. Group 78, a cluster of 146 families, sits on 11,700 square meters (approximately 3 acres) of prime real estate in the heart of Phnom Penh. Seeing commercial potential in the land, the municipality sought to evict the families who had been living there for over 20 years. In 2001, after proper documentation had been processed recognizing Group 78's right to remain on the land, the village chief falsified a white paper stating that the community members wished to vacate their land. In reality, the authority had duped them into signing an agreement to vacate. Intimidation tactics were used: residents were repeatedly threatened with house burnings if they did not clear out immediately. Undeterred, members of Group 78 went to the municipality and Land Management Ministry for an investigation. That investigation went nowhere for five years; then suddenly the community started receiving multiple eviction notices with different and flimsy justifications in each notice. One claimed the reason was for the city's beautification; another, that the land was classified as state land and that the people had no rights to it; and the last, that the land was owned by an unidentified individual. Fed up with the authority's actions, the community sought the aid of CLEC.
Man Vuthy, coordinator of CLEC, says of Group 78: "They know us because CLEC used to successfully help their neighboring community, Koh Pich (Diamond Island). They came to CLEC's office for help. And then CLEC accepted the case."
Group 78 resident and CLEC client Lam Sambo describes his community’s struggle to claim their legal rights:
"Since 2006, I have received five to six eviction notices. CLEC recognized the notices were inconsistent. We benefit from the NGO. With CLEC's help, we can stay here and are stronger than before because we trust our legal support. We know how strong the commune is. If we don’t have strong legal aid, we will be gone in a few hours."
CLEC pressed the case that the government had no grounds to expel Group 78. Since the community has strong possession rights as stipulated in the 2001 Land Law, the authorities had no right to evict the community. According to CLEC, publicity generated from this case has helped spread the notion within Cambodian society that citizens can use the law to defend themselves and uphold their rights, even in conflicts with the government.1
Not many NGOs will work on high-profile cases like Group 78's because they consider it too dangerous. In an environment where power is highly concentrated among elites and is not often questioned, it is risky to take on the government. Despite numerous threats and arrests, CLEC has been able to achieve tremendous success because of USAID's continued investment and belief in CLEC's public interest advocacy. Thanks to CLEC's work, many citizens realize they have legal rights and feel some confidence in demanding that their government respect those rights. By committing to a long-term and broad- reaching effort at improving the justice system and building consensus for reforms, USAID has fostered an environment where active citizens can finally have a voice in their government.
However, CLEC staff are unsure of how long they can expect this investment by USAID. Since CLEC must apply every year for funding from the US, they can't predict whether they will have the funds to continue their work defending citizen rights. According to Yeng Virak, executive director of CLEC, they may be victims of their own success: "USAID money supports this project. However, our funding is ending this year, and we will have to apply again next year. Our project has been too effective and is seen as troublesome to the government because we do impact high-profile litigation cases."2
1 Group 78's story has been followed by The Phnom Penh Post, Voice of America, Amnesty International, Center on Housing Rights and Evictions, UN Cambodia Office of the High Commissioner for Human Rights, numerous other organizations, blogs, and networking sites.
2 This article is based on interviews conducted in October 2008. Since then, CLEC has received funding from USAID to continue its high-impact advocacy work. To see Group 78 residents describe their situation as of May 2009, view a video by LICADHO (Cambodian League for the Promotion and Defense of Human Rights), a Cambodian NGO that advocates human rights.
]]>"This bill is yet another important step in Chairman Berman's effort to fundamentally reform the way the US fights global poverty," said Raymond C. Offenheiser, president of Oxfam America. "Much important work still remains to be done to reform US policies and programs for global development. However, this bill moves us forward along the path to. reform."
H.R. 2410 would expand the number of Foreign Service Officers (FSOs) at both the Department of State and USAID, providing the US government with increased human capital to meet global challenges. The bill specifically includes authority for the Secretary of State to hire 1,500 FSOs and for the Administrator of USAID to hire 700 new FSOs over the next two years. Additionally, the bill includes authorities to make it easier to attract and retain personnel with the specialized skills required for supporting long-term poverty fighting efforts.
Oxfam America is also very pleased that the investment to modernize the Foreign Service includes a focus on using diplomacy to actively prevent, mitigate, and respond to international crises in a timely manner.
"An additional 1,500 State Department recruits, equipped with adequate training and a focused mandate, could go a long way in improving US diplomacy to address humanitarian crises," said Offenheiser.
To this end, the bill also requires the US government to outline a specific plan for the development of a government-wide strategy and the strengthening of United States civilian capacities for preventing genocide and mass atrocities.
"For too long the United States has responded to situations of mass atrocities in ad hoc and uncoordinated ways. Unless the US civilian agencies plan for contingencies and build capacity, our moral outrage will never be translated into effective action," said Offenheiser.
Oxfam America welcomes Chairman Berman's efforts, and calls upon Members of Congress to actively support broader reform to rebuild America's efforts to effectively combat global poverty and put poor people and governments in charge of their own development.
In April, Chairman Berman and Representative Mark Kirk (R-IL) introduced H.R. 2139, the Initiating Foreign Assistance Reform Act of 2009. H.R. 2139 focuses on three critical areas of foreign assistance reform: creating a US national strategy for global development, refocusing its monitoring and evaluation approach, and increasing transparency on where assistance dollars are going. Oxfam America supports H.R. 2139, and hopes to see the United States design and implement a National Strategy for Global Development.
]]>"Congressman Berman has long sought to make reform of US government global development programs a priority," said Raymond C. Offenheiser, President of Oxfam America. "Reform is necessary to restore America's leadership in fighting global poverty. Both he and Congressman Kirk should be applauded for identifying reform as one of America's top foreign policy challenges."
"With the right reforms, the US foreign assistance system can help poor people get the tools they need to lead their own development, spur economic growth and create a more prosperous world for everyone. This bill is an important first step to making sure the United States has the right tools to fight global poverty."
The bill, the Initiating Foreign Assistance Reform Act of 2009, focuses on three critical areas of foreign assistance reform: creating a US national strategy for global development, refocusing its monitoring and evaluation approach, and increasing transparency on where assistance dollars are going.
"Creating a national strategy for global development will help coordinate our disjointed US foreign assistance system, establish poverty reduction as its primary goal and provide developing countries and their citizens more ownership over their own development agenda," said Offenheiser. "By taking the time to listen to the poor people and countries we are trying to help, and by giving them more control over their own futures, US foreign assistance is more likely to make a long-lasting impact."
Tracking funding and ensuring assistance dollars are getting to people in need is one the biggest challenges facing US foreign assistance programs said Oxfam. There has been little chance to date that developing countries could get critical information needed to plan effectively for their own development projects. The portions of the bill focused on transparency promise US taxpayers and developing countries long-awaited clarity on how foreign assistance dollars are being distributed.
"Greater transparency in US foreign assistance programs is an important step to creating true partnerships with developing countries and their citizens," said Offenheiser. "When developing countries get access to information they need to effectively plan their own futures, they are empowered to work alongside the US as equal partners."
The monitoring and evaluation portion of the bill is a promising effort to change an antiquated model of gauging success. For too long, the US has focused on counting things like how many individuals went through a one-off agricultural training workshop rather than how much more food was produced locally to meet the needs of a community.
"Washington needs to stop bean-counting when it comes to judging the success of US foreign assistance. We need to be looking at how many more girls are getting an education because of US foreign assistance, and how their lives are improved, not just how many pencils are sharpened or textbooks are bought."
"President Obama has already expressed a commitment to making our foreign assistance dollars as effective as possible. Chairman Berman's 'down payment' on foreign assistance reform helps us get there," said Offenheiser.
]]>In the response to the report, Raymond C. Offenheiser, president of Oxfam America, made the following statement:
"The State Department was asked to solve a complicated leadership and political problem with management tools like databases.
US foreign assistance doesn’t just need databases right now. What it needs to become more effective is someone to step up and lead us out of this quagmire.
We are starting to see this leadership. Secretary Clinton has made it clear US foreign assistance needs a fresh start. Congressman Berman is promising some eagerly anticipated legislation on aid reform.
This new leadership has the opportunity to deliver a National Strategy for Global Development that will reign in a sprawling assistance program, focus US foreign assistance on reducing global poverty and give poor people more control over their own futures."
Learn more about Oxfam America's aid reform initiative.
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