Likely Humanitarian Scenarios In Case of US-Led War against Iraq
Gast
Likely Humanitarian Scenarios In Case of US-Led War against Iraq
Likely
Humanitarian Scenarios
In Case of
US-Led War
against Iraq
U.N. Classified Draft of December 10th, 2002
Ebooked by wintermute_1980
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Table of Contents
Notes for Readers
Notes for Editors
Transcript of 'Likely Humanitarian Scenarios'
Introduction
Need Assessment
Summary of scenarios
Socio-economic recovery of Iraq
Debt protection
United Nations access to programme resources
Relations with and role of the military
Other matters which require early guidance
Appendix
Facsimile Files of 'Likely Humanitarian Scenarios'
Introduction
Need Assessment
Summary of scenarios
Socio-economic recovery of Iraq
Debt protection
United Nations access to programme resources
Relations with and role of the military
Other matters which require early guidance
Appendix
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I. Notes for readers
This "strictly confidential" UN document, dated 10 December 2002,
examines "Likely Humanitarian Scenarios" in the event of a war of US-led
forces against (and inside) Iraq. It was written to assist with UN
contingency planning for safeguarding the wellbeing of a population most
of whom the document acknowledges are "highly dependent" upon a
Government ration for their basic needs. Since the purpose of such a war
would be to oust the current Iraqi government, this would eliminate the
fulfilment of such basic needs as food, potable water and health care for
most of the population at least in Central and Southern Iraq.
The document focuses on the likely outcomes for the infrastructure, the
economy and Iraqi civilians, in the event of a range of anticipated military
scenarios. It includes the following estimates concerning the humanitarian
effects of military action:
§ Serious degradation of the electricity sector1, with the knock-on effect
that all sectors of the infrastructure, primarily in population centers -
including health, water and sanitation - will have reduced capacity and
thus insufficient performance (paragraph 5a). The extensive
curtailment of access to potable water is anticipated (paragraph 15),
so that an estimated "39% of the population will need to be provided
with potable water" in the short term (paragraph 28).
§ In planning for the numbers that will require medical treatment, "as
many as 500,000 could require treatment to a greater or lesser degree
as a result of direct or indirect injuries" (paragraph 23). A footnote
bases this claim on World Health Organisation estimates of 100,000
direct casualties, and 400,000 indirect casualties. The high number of
indirect casualties from breakdown of the basic sanitary infrastructure
may be partially because "the outbreak of diseases in epidemic if not
pandemic proportions is very likely." (paragraph 25). Furthermore, it
indicates existing shortages of some medical items, "rendering the
existing stocks inadequate" for war-increased demand (paragraph 22),
and exacerbated by the "likely absence of a functioning primary health
care system in a post-conflict situation" (paragraph 24).
§ "It is estimated that the nutritional status of some 3.03 million persons
countrywide will be dire and they will require therapeutic feeding. This
consists of 2.03 million severely and moderately malnourished children
under five and one million pregnant and lactating women." (paragraph
27). A footnote identifies this as a United Nations Children's Fund
(UNICEF) estimate.
§ "It is estimated that there will eventually be some 900,000 Iraqi
refugees requiring assistance, of which 100,000 will be in need of
1 Including purpose-built BLU-114/B bombs and possibly AGM-154 missiles
http://www.fas.org/man/dod-101/sys/dumb/blu-114.htm as well as
‘Kit-2’ Tomahawk cruise missiles http://www.cdiss.org/tabtechs.htm, as
pioneered in the 1991 war against Iraq.
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§ immediate assistance." (paragraph 35). A footnote identifies this as an
estimate of the United Nations High Commissioner for Refugees
(UNHCR). An estimated 2 million people will require some assistance
with shelter (paragraph 33), while for 130,000 existing refugees in
Iraq "it is probable that UNHCR will initially be unable to provide the
support required" (paragraph 36).
The text focuses on humanitarian needs and coping mechanisms. As part
of its analysis, the document presents the data of UN agencies on the
existing humanitarian situation inside Iraq. The context is the
humanitarian situation after 12 years of military and 'dual-use good'2
sanctions: a damaged economy and infrastructure, and almost total
dependence on the Iraqi government for basic needs provision. The
document estimates that 16 million Iraqis3 are completely dependent on
the monthly food rations, in that "they have no other means with which to
provide for other essential requirements" (paragraph 11). Chronic
unemployment since 1991 has resulted in a situation in which "all except
the most privileged have completely exhausted their cash assets and have
also in most cases disposed of their material assets". For these reasons,
the document also rejects comparisons with humanitarian outcomes of
both the 2001 Afghanistan and 1991 Gulf conflicts (paragraphs 2, 4 and
11).
This file presents an analysis of requirements for both emergency and
protracted scenarios. Funding issues and relations with the military are
also discussed.
The existence of this document was first reported in THE TIMES (London)
on 23 December 2002, in an article entitled "UN chief issues secret orders
for war in Iraq"4. However, this is the first time that the document has
been made publicly accessible formatted for print-out.
Please note this UN document is a draft. Estimates and other content may
have since been revised. Additionally, several paragraphs and tables have
been deleted at the request of the individual who released the document,
including the entirety of page 35.
The UN document was obtained via Nathaniel Hurd, Consultant on UN Iraq
policy for the Mennonite Central Committee (MCC) UN Office and the
Cambridge NGO CASI (see next page).
2 Including all educational goods, most medical supplies, construction materials
etc.
3 60% of the population, not taking into account that large areas are under
Kurdish control and thus a different matter.
4 http://www.timesonline.co.uk/article...522510,00.html
5 These deleted parts seem to outline, amongst other things, the 'security
phases' referenced to in paragraph 56a and b.
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II. Notes for editors:
1) A scan of the original UN document (minus deletions) was made
available at http://www.casi.org.uk/info/undocs/war021210.pdf, by
the Campaign Against Sanctions on Iraq (CASI) 6, a Cambridge-based
NGO which exists to raise awareness to the effects of sanctions on
Iraq, and campaigns on humanitarian grounds for the lifting of nonmilitary
sanctions.
CASI does not support or have ties to the government of Iraq.
The document had been acquired by CASI via Nathaniel Hurd7,
Consultant on UN Iraq policy for the Mennonite Central Committee
(MCC) UN Office. His8 and CASI's9 notes also served as basis for the
introductory notes.
2) Please note this UN document is a draft. Estimates and other content
may have since been revised. Additionally, several paragraphs and
tables have been deleted at the request of the individual who released
the document, including the entirety of page 3.
3) Please note that the document text is the CASI transcription of the
original, and as such may contain errors introduced in the transcription
process. To be sure of an accurate text, please compare to the original
document provided as the facsimiles.
4) CASI can be contacted via its website6 or by email on info@casi.org.uk.
6 http://www.casi.org.uk
7 nathaniel_hurd@hotmail.com
8 http://www.casi.org.uk/info/undocs/war021210notes.html
9 http://www.casi.org.uk/pr/pr030107undoc.html
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9
STRICTLY CONFIDENTIAL
10 December 2002
LIKELY HUMANITARIAN SCENARIOS
Introduction
1. In presenting the present paper it is not presumed that wa[r] is not inevitable. However,
for planning purposes, and as requested, certain assumptions are made in preparing for
eventualities should hostilities occur. Unlike the progression of the military intervention in
1991, a future confrontation is expected to develop beyond the preparatory, and relatively
short, aerial bombardment of infrastructure, towns, and cities into potentially a large scale and
protracted ground offensive, supported by aerial and conventional bombardment. The
resultant devastation would undoubtedly be great. Initially, access to those in need would
either be denied by one or other of the protagonists or severely hampered by security or safety
concerns. Additionally, logistics, particularly the ability to move with any degree of freedom,
will be a major constraint.
2. There is a temptation is some quarters to equate the situation following any future military
intervention in Iraq, with the population's ability to cope in 1991. Such comparisons are not
valid, as the sustentative majority of the population, immediately prior to the events of 1991,
were in full employment and had cash and material assets available to them to cope with the
crisis. Aside from now not having been gainfully employed for some time, during the
intervening period, all except the most privileged have completely exhausted their cash assets
and have also in most cases disposed of their material assets. Accordingly, the bulk of the
population is now totally dependent on the Government of Iraq for a majority, if not all, of
their basic needs and, unlike the situation in 1991, they have no way of coping if they cannot
access them: the sanctions regime, if anything, has served to increase dependence on the
Government as almost the sole provider.
3. There is also the temptation to draw comparisons between the situation in Afghanistan
following the military intervention of 2001/2002 and the situation, which is likely to be facing
Iraq in a post conflict scenario. Aside from having similar population figures – almost 26
million in Afghanistan and approximately 26.5 million in Iraq – such comparisons are simply
invalid. The population in Afghanistan is predominantly rural. Furthermore, over time the
Afghan population has become used to being less reliant on the state – there has been no allencompassing
"state machinery" in Afghanistan – and the Afghans have therefore been more
self-reliant. The situation in Iraq, however, has been the reverse: a relatively urbanized
population, with the state providing the basic needs of the population as a matter of
Government policy. As households have generally become poorer during the course of the
sanctions regime, the Iraqi people have become even more reliant on the state to meet their
basic needs.
4. Furthermore, notwithstanding the sanctions regime, the Iraqi people are relatively
sophisticated in their needs. Quite simply, the Iraqi society has become accustomed to a
reasonable standard of services that are provided under the auspices of, or directly by, the
state. However, with the foreseen degradation of infrastructure in general, and electricity in
particular, on which the provision of the services concerned are heavily dependent on, many
of these services are not likely to be available following a conflict.
5. Accordingly, in assessing the likely humanitarian needs of the Iraqi people during the post
conflict situation, the following assumptions would appear to be justified:
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a) The electricity network will be seriously degraded because of damage to generating
plants and the transmission and distribution networks. The damage to the electricity
network will also result in collateral reductions in capacity in all sectors, particularly
water and sanitation as well as health.
b) The port of Umm Qasr will be largely unavailable as it will in all probability either
be blockaded or suffer significant damage in the preliminary stages of any hostilities.
Accordingly, it cannot reliably be predicted whether any capacity in the port will be
available for humanitarian activities.
c) The railway system will be significantly degraded as a result of damage to bridges,
culverts and tracks.
d) Road transportation vehicles and depots will suffer considerable damage and, as a
consequence, there will be a significant degradation of the already poor transportation
system.
e) As Iraq is trisected by two major river systems which flow north-south and as most, if
not all, major bridges will be destroyed or damaged, east-west movement of goods
and people will be on a restricted basis. Furthermore, the rivers are of such a depth
that fording is not possible and there is an almost total absence of lighters, ferries and
the like.
f) Damage to the electricity network will result in collateral reductions in capacity in all
sectors, particularly water and sanitation as well as health.
g) There could be significant damage to existing Government stocks of all commodities.
h) The production and export of crude oil as well as production of petroleum products
mostly for domestic consumption will have ceased, and the facilities holding existing
reserve stocks will have been significantly damaged.
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[page 3 withheld]
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Needs Assessment
11. As stated earlier in paragraph 2 above, there are some 60 per cent of the population – 16
million people – highly dependent on the monthly "food basket" – they "consume" all the
commodities provided, (by consuming or selling part to mitigate other needs), as they have no
other means with which to provide for other essential requirements.
12. In the three northern governorates, there will be an immediate need to establish an
alternative source of supply for the items provided in the "food basket", for the entire
population of about over 3.7 million people: the population in the three northern governorates.
Given the probable course of the conflict, the current established delivery system of
foodstuffs and necessities from Mosul and Kirkuk is not likely to be available from the outset
of hostilities because of their location, south of the dividing line. Of the total population in the
three northern governorates, approximately 2.2 million will be highly dependent on the food
distribution system.
13. The loss of electricity to Dahuk, while having major consequences at the household
level, should not immediately impact the provision of humanitarian services. Assuming the
level of conflict is low throughout the three northern governorates, and based on the recent
UN observations of small and medium sized electricity generators in those governorates, and
a 29 MW generators in each of the three governorates, there appears to be sufficient capacity
available, supplemented by the delivery pipeline of additional generators under already
approved contracts to provide backup electricity supply to "emergency" facilities. This is a
factor that will be taken into account when determining the final position of the small and
medium generators already made available under the humanitarian programme.
14. It will be necessary, however, to establish a supply line for fuel. It is estimated that in the
three northern governorates the monthly requirement of fuel1 is approximately 30,000,000 lts.
of gasoline, approximately 30,000,000 lts of diesel, about 40,000,000 lts of Kerosene, and
about 10,000 tons of cooking gas. However, there is very limited storage capacity in the three
northern governorates and the available refining capacity would be insignificant.
15. Elsewhere in the country, particularly in the "Centre Region" and "Baghdad", given the
likely intensity of any conflict, particularly in the preparatory and initial stages, it is probably
that the infrastructure will be severely damaged as a result of aerial and ground bombardment
or by the withdrawing Government forces. Infrastructure, particularly that relating to oil
production; transport,.i.e., vehicles and depots; ports; railways; roads and bridges; and
electricity production can be expected to be especially hard hit. As a result, the availability of
potable water is likely to be curtailed extensively. The infrastructure, including private and
commercial vehicles, which are still available, may well be allocated by the Government to
other than humanitarian purposes. In any event, the logistical aspects of the humanitarian
response will require a substantial amount of specialized assets and the absence of such assets
in sufficient quantities will probably be a major constraint, until some degree of rehabilitation,
albeit of a temporary nature, occurs. Fuel, in the worst case, may have to be imported.
1 Based on the latest estimates by the United Nations personnel operating in the three northern
governorates.
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16. However, it is improbable that the level of services being provided by the Government
would cease simultaneously for the total population. Rather, it is probable that there would be
a progressive run down and eventual cessation of distribution of commodities and the
provision of services. If one presumes that potential military intervention will roll
simultaneously from the south and the north, the peripheral governorates of Basrah, Maysan,
Thi Qar, Muthana, Najaf, Kerbala, and Qadisiyah in the south and Ninewa and Tameem in the
north will be immediately affected.
17. The population in immediate need of humanitarian intervention and that are expected to
be accessible, i.e., those in the south, would then total 5.4 million2, to which must be added a
further 2 million internally displaced persons (IDPs) and refugees3, a part of the estimated
900,000 destined for Iran and the 50,000 to Saudi Arabia, from Baghdad and the Centre
Governorates. Accordingly, the total caseload beneficiaries would total 7.4 million. While
there will requirements that will need to be addressed in the other governorates, as previously
stated, it is considered that either access will be denied by the warring parties or it will be
impracticable because of the prevailing security situation.
19. Given the 21 or 22 days a month that food stuffs are being distributed, approximately
one million people are entitled to receive their ration on any of those days. It can also be
assumed that of these 600,000, or 60 percent of the recipients referred to in paragraph 11
above, will be highly reliant on the ration for their household food requirements.
Additionally, because the distribution cycle relates to distribution agents, and not to
individuals, commodities will not be available in certain localities, should the agents
concerned do not receive their consignments or not be in place. Accordingly, the need will be
concentrated in these areas rather than evenly distributed throughout the country. Such
pockets will unfortunately exist in each district and governorate.
20. The recent trend by the Government of issuing the monthly food basket on a two
monthly cycle potentially places more food in the household. However, based on anecdotal
information, the World Food Programme (WFP) believes that the many poor families, and
therefore with the least food security, are selling the "additional" food received to generate
income in order to meet their other essential requirements. The current shortage in some
commodities from the food basket, especially pulses – the main source of protein – also
mitigates the benefit of the increased issue of food supply. As a result, most household food
reserves would not last two months if distribution were interrupted or suspended.
21. Throughout the country, there are some 43,000 Food and Flour agents4, and the monthly
food distribution is dependent on the present system continuing to function to a high degree of
efficiency. This institution is immense, and any disruption to its organization would seriously
hamper the distribution of food, as referred to in paragraph 19 above. Because of the degree
of dependence of the population as a whole on the monthly distribution of food and other
necessities, it is not practical to target segments of the community directly when distributing
foodstuffs. Accordingly, the continued use of food and flour agents is probably the most
practicable medium for food distribution in the post conflict phase. Preserving what is
presently there and replacing those portions of the network that suffer during the conflict
phase, must be accorded high priority.
22. With regard to the health sector, there will generally be some four months stocks of basic
pharmaceuticals and medical supplies in the country to meet normal demand. This should not
be
2 The 'war affected' population of the 'Southern Governorates'
3 There will be movement both to and from the southern governorates, which it is assessed will, in
terms of gross numbers, be equal.
4 Based on information provided to WFP by the Government.
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read, however, as an indication that there is a full range of medical items available, as there
are some particular items which are presently in short supply, or non-existent. The expected
increase in the instances of diarrhoeal disease and respiratory infections resulting from the
conditions experienced in a post- conflict scenario, for example the absence of potable water
and contaminated air (e.g., should oil fields be put ablaze, similar to what happened in
Kuwait), as well as over-crowding, traumatic injuries, and a lack of refrigeration, would
translate into an increased demand and consumption of medical supplies and drugs, rendering
the existing stocks inadequate.
23. It is also likely that in the early stages there will be a large segment of the population
requiring treatment for traumatic injuries, either directly conflict-induced or from the
resulting devastation. Given the population outlined earlier, as many as 500,0005 could
require treatment to a greater or lesser degree as a result of direct or indirect injuries.
24. The children under 5, pregnant and lactating women, and IDPs will be particularly
vulnerable because of the likely absence of a functioning primary health care system in a post
conflict situation. In the centre and south it is estimated that these groups represent a total
caseload of 5.2 million people 6, 4.2 million under 5, with one million pregnant and lactating
women, plus a further two million IDPs. Using purely per capita ratios and "poverty and
environmental patterns", 1.23 million of these will be in the southern governorates, to which
the United Nations is more likely to have access, and accordingly will need immediate
humanitarian interventions. This figure requires further refinement in order to take account of
the infirm, the chronically ill, and the elderly.
25. Furthermore, the outbreak of diseases in epidemic if not pandemic proportions is very
likely. Diseases such as cholera and dysentery thrive in the environment, which will prevail
and as a result of circumstances and the present low vaccination rates for measles, meningitis
and the like will be ever present. When determining the requirement for pharmaceuticals and
medical supplies these factors must be considered.
26. As with other sectors, the requirement for health supplies will vary with time. Although
some of the initial dependency will reduce with time, for example as conflict-related injuries
are treated in a particular area, and as some find alternative solutions to satisfy their needs,
others will become dependent on the system. It is probable that, in the foreseeable future, the
number of additional beneficiaries will exceed those who may find alternative solutions.
Accordingly, the need in this area will continue to grow in the short and medium term,
because of the general environment and the limited alternatives available to the population.
27. It is estimated that the nutritional status of some 3.03 million7 persons countrywide will
be dire and that they will require therapeutic feeding. This consists of 2.03 million severely
and moderately malnourished children under five and one million pregnant and lactating
women. While not all the vulnerable children identified in paragraph 24 above will require
therapeutic feeding, all pregnant and lactating women will. Furthermore, using a straight
population ratio, a little over half a million of the above persons, will be in the southern
governorates. Among the most vulnerable are the approximately 5,000 persons8 confined to
institutions, comprising orphaned children, the severely handicapped, and children in
detention, and 21,000 elderly9. To those figures must be added patients in hospitals – the total
capacity of hospital beds is almost 27,00010 and although
5 Based on WHO estimates of direct, 100,000, and indirect, 400,000, casualties.
6 UNICEF estimate.
7 UNICEF estimate.
8 Based on information provided to UNICEF and WFP.
9 Based on information provided to WFP.
10 Data provided by the UN Health Sectoral Working Group in Iraq.
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occupancy rates are not known they must be assumed to be high – and prisoners. Although
the number is not large, the dire circumstances in which they presently exist can only become
worse and, consequently, their needs critical.
28. Water treatment requires electric power and as this will, in all probability, be severely
disrupted by any conflict, it is highly likely that it will remain so for some time. Accordingly,
the availability of potable water will be at a premium. UNICEF estimates that some 39
percent of the population will need to be provided with potable water – for a short while – by
treatment plants that have 'stand-by' electricity generation, although the water supply will be
rationed. The access to potable water at present is not evenly distributed – 70 percent of urban
facilities have emergency generation while the percentage in the rural facilities is only 11
percent.
29. Given the population affected in the southern governorates – but not including IDPs and
potential refugees but who have not yet left Iraq – (a total of 5.4 million as indicated in
paragraph 17 above), the immediate requirement would be to provide access to clean water
for some 4.07 million people.11 It should also be noted that chemicals required for the
treatment of water, i.e., chlorine and aluminium sulphate, and other consumables for the
treatment plants with generation capacity will, in all probability, be limited.
30. The sanitation system is another matter of serious concern. At present 500,000 metric
tons of raw effluent are pumped daily into fresh water sources. At present, there are
approximately 5 million people, 4 million of whom reside in Baghdad12 who have access to a
sewerage network, relying on pumping stations, which are connected to the electricity grid. It
is estimated by UNICEF that only 10 percent of these stations have backup generators. Lest
this become a greater health hazard than it is at present, 5 million persons who are presently
reliant on a sewerage network would require assistance with sanitation facilities.
31. As in the case of health care, the dependency will in all probability continue to increase
and a large proportion of the population is likely to remain dependent on outside assistance
for an extended period. The rehabilitation of not only the electricity grid but also the water
distribution network should receive most urgent attention.
32. During any conflict, and in the immediate phase following it, a significant segment of
the population will be displaced. The devastation of structures could be great. While in the
urban areas, shelter will be easier to find through occupation of partially destroyed buildings
as well as easier availability of make shift building materials, such options will not be
available to those in rural areas – for the local inhabitants as well as IDPs who have moved
from the cities and towns into the rural areas – in view of the absence of "makeshift"
accommodation and recyclable building materials.
33. In the initial stages of the emergency, access to those in need will be difficult.
Accordingly while a large proportion of the population will initially be displaced, by the time
humanitarian access is practicable, many of those displaced will have returned or found
makeshift accommodation. Under the circumstances, a figure of 25 percent of the "war
affected" population requiring some form of assistance seems to be realistic, although this
figure would require further confirmation. Such a figure represents a beneficiary population
of some 2 million requiring assistance with shelter. The numbers will of course fluctuate as
more people are displaced and others find or construct semi-permanent housing.
11 UNICEF estimates.
12 UNICEF estimates.
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34. The beneficiary population will also present some particular concerns. It is to be
expected that among those displaced, there will be significant numbers of 'unaccompanied
minors' and 'female headed households'.
35. It is estimated that there will eventually be some 900,000 Iraqi refugees requiring
assistance, of which 100,000 will be in need of immediate assistance13. The number of
refugees may in fact be much higher, although many of those with the resources and skills to
resettle elsewhere have already done so. There is also the likelihood of transit camps
established in Iraq adjacent to borders, with a population of perhaps as many as 500,000
people.14
36. The number of refugees presently in Iraq, for which UNHCR is responsible, is
approximately 130,000 persons15. While these will, in all probability, remain in country,
perhaps joining those displaced, it is probable that UNHCR will initially be unable to provide
the support required.
37. The absence of a mine action programme in the center and south will exacerbate the
difficulties experienced by the population vis-à-vis mine injuries. There is also presently no
mine awareness education in the centre and south. While the rural population has acquired
some knowledge in living in a mine-infested environment, most of the urban population will
not have the information required.
38. The areas along the borders with neighbouring countries of Iraq, and some areas around
the dividing line with the three northern governorates presently under the control of Kurdish
local authorities, are 'protected' by barrier minefields, and will therefore present a formidable
hazard to refugees and IDPs. Additionally, the conflict will result in unexploded ordnance
(UXO) becoming commonplace, particularly in the towns and cities, causing considerable
casualities.
Summary of Scenarios
39. Emergency: The immediate humanitarian interventions are likely to require:
a) Bridging, material handling and transport16.
b) Food and necessities for some 5.4 million people 17.
c) Health supplies to treat injuries for approximately 100,00018.
d) Health supplies to treat the highly vulnerable for up to 1.23 million19.
e) Health supplies to cater for the ongoing needs of 5.4 million20.
f) Nutrition supplies for 0.54 million21.
g) Water treatment equipment for 5.4 million22.
h) Chemicals and consumables for 5.4 million23.
i) Sanitation materials and chemicals24.
13 UNHCR estimates.
14 UNHCR estimate.
15 Based on UNCHR existing case load.
16 See paragraph 3.
17 See paragraph 17.
18 See paragraph 23.
19 See paragraph 24.
20 The 'war affected' population of the 'Southern Governorates'.
21 See paragraph 27.
22 The 'war affected' population of the 'Southern Governorates'.
23 The 'war affected' population of the 'Southern Governorates'.
24 See paragraph 29.
17
j) Total range of services for 2 million IDPs, some of whom may well become refugees.
The number that may eventually be in this category cannot be assessed with any
confidence.25
k) Emergency shelter for 1.4 million26.
l) Family reunion facilities for unaccompanied minors.
m) Facilities for 100,000 Iraqi refugees in neighbouring countries27.
n) Mine Action activities, (demining, UXO clearance, mine awareness).
40. Protracted Humanitarian Requirements : Following the immediate requirements
referred to in paragraph 39 above, the humanitarian interventions are likely to be required for
a protracted period of time, certainly longer than one year, and may include:
a) Further bridging, material handling, and transport28.
b) Milling and iodizing capacity29.
c) Food and necessities for, at a minimum, 23 million30.
d) Health supplies to treat injuries for approximately 0.5 million31.
e) Health supplies to treat up to 23 million32.
f) Nutrition items for 3.03 million33.
g) Water treatment equipment for 18.24 million34.
h) Chemicals and consumables for 18.24 million35.
i) Sanitation materials and chemicals36.
j) Total range of services for 2 million IDPs, some of whom may well become refugees.
The number that may eventually be in this category cannot be assessed with any
confidence37.
k) Emergency shelter for 3.6 million38.
l) Family reunion facilities for unaccompanied minors.
m) Facilities for 1.4 million Iraqi refugees, 900,000 entering neighbouring countries and
500,000 remaining along the border but inside Iraq40.
n) Initiatives to invigorate the economy.
o) Livestock and plant production materials.
p) Mine Action activities, (demining, UXO clearance, mine awareness).
Socio-economic recovery of Iraq
41. It is essential that efforts be made as early as is practicable to begin the long process of
recovery. It would not seem prudent to replace the "state provider" with a "humanitarian
provider". This will only be possible if alternative coping mechanisms are put in place early
in order to provide opportunities for employment of one form or other. It will also be critical
to the success of any humanitarian intervention if the agricultural sector is revived most
urgently.
25 See paragraph 17.
26 Assessed population in the 'southern Governorates' in need of emergency shelter.
27 See paragraph 35.
28 See paragraph 5.
29 Requirement to iodize locally available salt and mill locally available cereals.
30 Population of the centre and south.
31 See paragraph 23.
32 Population of the centre and south.
33 See paragraph 27.
34 Population of the centre and south, less the IDPs.
35 Population of the centre and south, less the IDPs.
36 See paragraph 29.
37 See paragraph 17.
38 Assessed population in the centre and south in need of emergency shelter.
40 See paragraph 35.
18
Debt protection
42. A key facet of any rejuvenation of the economy will be the continued protection of both
the public sector and individuals from external debts, variously estimated at between $100
and $150 billion. This is currently the case under the sanctions regime. Although the relevant
provisions of Security Council resolutions may be revised or the present restrictions may be
modified in a post conflict scenario, positive consideration should be given to maintaining –
at the least during the initial stage – those provisions, which afford the protection necessary in
order to permit rehabilitation of the economy.
[remainder of page 10, paragraphs 43-47, withheld]
19
United Nations access to programme resources
48. It may well prove necessary to amend some of the existing Security Council resolutions
to give the United Nations, including the UN agencies and programmes, authority to continue
operating under resolution 986 (1995) and subsequent resolutions. They will need the ability
to access assets on a continuing basis, particularly in the early stages of their humanitarian
intervention. This appears to be an effective method of meeting this need. However, in the
short-term, the fundamental position that all assets provided under the programme are owned
by the Government will need to be maintained, in order not to enter into disputes over
ownership.
49. As has been stated earlier, it is assumed that almost from the outset of hostilities, exports
of oil will cease, at least for some time. As part of the degradation of systems, institutions and
infrastructure, oil production will stop and, apart from that held in storage in Ceyhan, in
Turkey, which is very limited (less than one million barrels at present), export of oil and,
therefore, generation of income available for programme implementation, will halt. Given this
circumstance, the ability to access the programme assets, be they in cash or in kind currently
in the delivery pipeline, is imperative until alternative sources of revenue are mobilized.
Another course of action might be similar to that immediately in the aftermath of the Gulf
War, where Member States advanced funds on the understanding that they would be
reimbursed eventually.
50. Accordingly, the need to obtain guidance from the Security Council and authorization on
the utilization by the United Nations of programme assets in the pipeline of the oil-for-food
programme would require urgent consideration.
[paragraphs 51-52 withheld]
Relations with and role of the military
53. The United Nations agencies delivering humanitarian assistance will need to interact
with the military authorities on the ground. Such interaction will have to occur regardless of
whether the attack is sanctioned by the Security Council or not, although the circumstances
will obviously influence the relationship. These contacts should be initiated preferably prior
to the start of the conflict and should not be confined to issues related with the coordinates of
the humanitarian operational sites.
20
54. For years, as part of the debate over the role of the "post-modern armed forces" the
military have attempted to carve a niche for themselves in the direct delivery of assistance
instead of the previous stance of providing logistics and engineering support to humanitarian
organisations. This is very much an uncharted field that has, a priori, more "cons" than "pros".
US/DOD is the most proactive military establishment in the prosecution of such role – see the
extensive utilization of "military/civil affairs" staff in Afghanistan.
[paragraph 55 withheld]
Other matters which require early guidance
56. There are three matters on which early guidance is required, namely:
a) The likely 'safe havens' in relation to the security phases, coupled with the need to retain
'critical staff', in locations in the region, but outside Iraq, that are not the designated safe
havens.
b) The desire to retain an independent presence in Iraq almost at all cost, notwithstanding
the fact that phase V may be declared.
c) The need to be able to access funds for emergency preparedness, despite the fact that no
emergency for Iraq has been declared.
d) Although not exclusively humanitarian issue, there is need to give early consideration,
regarding the role, if any, of the United Nations regarding the post-conflict
administration.
e) A last outstanding matter, is the need for the UN to develop, simultaneously with the
present Contingency Plan, a Plan "B": What would be the UN's role vis-à-vis Iraq if the
conflict is avoided and sanctions are, at the least, suspended.
21
[appendix page 1 withheld]
22
TABLE 1 – HUMANITARIAN SCENARIOS
[missing data and column headings possibly withheld]
Health § Direct and indirect casualties:
500,000
§ 5.21 million high vulnerable
0.10
1.23
0.20
1.86
0.20
1.29
0.83 Based on population of
children under 5, and
pregnant and lactating
women.
Nutrition § 3.03 million (2.02 million severely
and moderately wasted under-5
children; 1 million Pregnant and
Lactating women requiring
supplemental food).
0.54 1.26 1.03 0.19 Based on nutritional
supplementation required for
Pregnant and lactating
women, and for anticipated
population of acutely
malnourished children
under 5.
Protection
of the most
vulnerable
groups.
§ 5,000 persons confined to
institutions, comprising orphaned
children, the severely handicapped,
children in detention,
§ 21,000 elderly.
§ 0.15 million unaccompanied
minors.
§ 0.13 existing refugees in Iraq.
Demining § major threat from UXO to children
under 18.
§ Refugees at or near borders.
§ IDPs crossing to the three northern
governorates.
Shelter and
Non-Food
Items
§ 460,000 Refugee-Like IDPs in
need of shelter and Non Food Items
§ 970,000 IDPs in need of Non Food
Items
IDPs expected to use
buildings and schools for
shelter. Need for Non Food
Items, especially heaters and
cooking facilities.
Editor's remarks regarding this table:
The centre 4 columns refer to the 4 areas into which Iraq is divided in this assessment: the
primarily Shi'ite 'Southern Governorates' (column 3), the 'Central Governorates' and Baghdad
(columns 4 and 5, although not necessarily in this order) and the 'Northern Governorates', i.e.
the areas under Kurdish control (column 6). Figures given are millions of civilians affected in
each area.
Press reviews of the material presented herein:
U.N. officials warned that the impact of a U.S. air and ground invasion in Iraq
would likely be worse than the humanitarian crisis caused by the Persian Gulf
War in 1991.
Washington Post
Confidential UN planning papers paint a grim picture of the effects of an attack
against Iraq[...].
The Times
The large casualty estimate is predicated on this scenario, which would involve
far greater loss of life than the narrow bombing campaign conducted in the U.S.-
led Gulf War in 1991.
International Herald Tribune
A confidential report drawn up by the United Nations estimates that an
American-led invasion would, in addition to those left homeless, put up to 10
million civilians at risk of disease and hunger.
Independent
The BBC UN correspondent says the United Nations has been somewhat
embarrassed by the revelation of the details of its contingency planning.
BBC News
Un rapport confidentiel de l'ONU offre pour la première fois une vision de ce
que seraient les conséquences humanitaires d'une guerre en Irak.
Le Monde
Die UN hatten das Papier geheim gehalten, weil sie mit ihrer Planung für einen
Krieg vor einem Dilemma stehen. [...] Warten die Vereinten Nationen [...] auf
den Abschluss der Unmovic-Kontrollmission, wären ihre humanitären Unter-
Organisationen für dramatische Folgen eines Krieges nicht gerüstet.
Frankfurter Rundschau
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