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Global Humanitarian Assistance Somalia International financing investments 21 st February 2012
Global Humanitarian Assistance
Somalia
International financing investments 21st February 2012
Contents Introduction ........................................................................................................................................ 1
Aid investments in Somalia ................................................................................................................. 3
Humanitarian aid ................................................................................................................................ 4
How much? ..................................................................................................................................... 5
How does this break down? ............................................................................................................ 6
Who were the largest humanitarian donors in 2011? .................................................................... 7
Who were the largest recipient agencies of humanitarian funds for Somalia in 2011? ................ 9
Aid investments in tackling the root causes of Somalia’s crises: ...................................................... 10
Investments in food security ......................................................................................................... 10
Official/ODA-eligible security sector funding ............................................................................... 10
Tackling insecurity by other means .................................................................................................. 13
Funding AMISOM .......................................................................................................................... 15
Basic concepts, notes and definitions ................................................................................................... 18
References ............................................................................................................................................ 19
About us ................................................................................................................................................ 19
Global Humanitarian Assistance Title
1
Introduction International attention on Somalia has increased in the last twelve months, in part in reaction to the
terrible human consequences of the political and security crisis - combined with drought - that
escalated to famine in parts of southern Somalia in mid-2011. The human cost of the crisis continues
to be difficult to ignore, and the humanitarian community, reflecting on the avoidable tardiness of
the international response, has brought important questions back onto the agenda about how and
at what stage in the evolution of a crisis we ought to target our international investments.1
Shifts in the dynamics of the complex political and security situation in Somalia have also lent
pressure to the case for reconsidering the nature and focus of international engagement in Somalia.
The surprise retreat of al-Shabab from Mogadishu in August 2011 allowed a consolidation of the
Transitional Federal Government (TFG) and African Union (AU) peacekeeping presence and a
migration of United Nations (UN) political presence to Mogadishu. Kenya and Ethiopia have also
deployed troops into Somalia, pushing al-Shabab back from border areas. The opportunities to build
on this momentum have been seized in a new joint UN-AU Strategic Concept for the AU Mission in
Somalia (AMISOM) in January 2012, which proposes a major ramping up of boots on the ground
from 12,000 to over 17,700 troops.
Piracy in the Gulf of Aden continues to be a costly source of disruption to international shipping
routes and the relief effort, and al-Shabab’s recent declaration of their merger with al-Qaeda can
only have sharpened international concerns about the ability of al-Shabab to nurture and export
terrorism.
It is in this climate of reflection on modes and emphasis of political, security and aid engagement in
Somalia that this briefing paper attempts to shed light on the international financial investments in
Somalia to date.
Figure 1: International humanitarian, development and security investments in Somalia (US$bn)
Sources: Development Initiatives based on UN OCHA Financial Tracking System (FTS), Organisation for Economic Cooperation and Development (OECD) Development Assistance Committee (DAC), Shortland (2012), Awad et. al. (2011) and Development Initiatives research
1 See https://www.oxfam.org/sites/www.oxfam.org/files/bp-dangerous-delay-horn-africa-drought-180112-
en.pdf
2 Global Humanitarian Assistance Basic concepts, notes and definitions
Figure 2: Timeline of events
1991 Civil war breaks out
Somaliland declares independence
1992 UN Security Council arms embargo (UNSC. 733)
UN Operation in Somalia (UNOSOM I) established
1993 Unilateral US military operation, not authorised by the UN, ends in disaster: hundreds of Somalis and 18 American soldiers killed
1994 US withdraws from Somalia
1995 UNOSOM II mission terminated; UN Political Office for Somalia (UNPOS) established
1998 Puntland declares autonomy
2000 Transitional National Assembly formed and president elected
2004 Transitional Federal Government (TFG) established
2005 African Union (AU) authorises an Intergovernmental Authority on Development (IGAD) Peace Support Mission to Somalia but no troops deploy
2006 Union of Islamic Courts (UIC) takes control of Mogadishu
Ethiopian troops invade without UN authorisation
2007 UN Security Council authorises African Union Mission to Somalia (AMISOM)
2008 Al-Shabab leader Aden Hashi Farah Ayrow killed in US air strike
UNSC resolution 1816 authorises states cooperating with the TFG to take action against piracy and robbery in Somali territorial waters
Djibouti Peace Agreement between TFG and opposition Alliance for Re-Liberalisation of Somalia (ARS) signed
2009 Last Ethiopian forces leave Mogadishu
UNSC expresses concern that Eritrea is supplying arms to Somalia
US Special Operations forces kill a senior al-Qaeda leader in East Africa in a raid into southern Somalia
UN Security Council imposes an arms embargo and targeted sanctions on Eritrea, accused of supplying weapons to Somalia
2010 Al-Shabab announces it has joined Al Qaeda's global jihad
74 people killed in two simultaneous bomb attacks in Kampala
2011 Agreement reached on a 'road map' to end transition in Somalia by August 2012
Famine declared in parts of southern Somalia
Al-Shabab withdraws from Mogadishu
UNSC resolution 1964 renews AMISOM mandate and increases mandated troop numbers from 8,000 to 12,000
Kenyan and Ethiopian troops enter Somalia
2012 AU Peace and Security Council endorses a new strategic concept for AMISOM
Al-Shabab declare 'merger' with Al-Qaeda
UNPOS relocates to Mogadishu
London Conference on Somalia
Source: Development Initiatives adapted from UN Security Council (UNSC) and BBC
Global Humanitarian Assistance Title
3
Aid investments in Somalia Official development assistance (ODA) to Somalia fell sharply in the period after United States (US)
military and United Nations (UN) peacekeeping troops withdrew in 1994 and 1995, and only began
to increase substantially in the period around the US-backed Ethiopian invasion in 2006. ODA
doubled between 2007 and 2008 as insecurity and declining access to food drove a major
deterioration in the humanitarian situation.
Figure 3: Total official development assistance (excl. debt relief)
Source: Development Initiatives based on OECD DAC data
Somalia receives a high proportion of its ODA as humanitarian aid, consistent with the prevailing situation where insecurity severely limits access and opportunities for development programming.
Figure 4: Sector breakdown of ODA (excl. debt relief), 2006-2010
Source: Development Initiatives based on OECD DAC Creditor Reporting System (CRS) data]
4 Global Humanitarian Assistance Basic concepts, notes and definitions
Humanitarian aid Somalia’s humanitarian crisis has increased in scale and severity since 2007, following the US-backed
Ethiopian-led military invasion in support of the TFG, which ousted the radical Islamist Union of
Islamic Courts. After Ethiopian troops withdrew in 2009, and despite the presence of an African
Union peacekeeping force, the al-Qaeda-linked Islamist group al-Shabab regained control of large
parts of the country.
Worsening insecurity after the 2007 invasion precipitated a dramatic deterioration in the
humanitarian situation resulting in large-scale displacements. Attacks on aid workers sharply
increased further diminishing already restricted humanitarian access to vulnerable populations.
Figure 5: Reported attacks on humanitarian aid workers, 2000-2011
Source: The Aid Worker Security Database (accessed 19th
February 2012)
Delivering humanitarian aid in one of the most insecure places in the world is costly and extremely
difficult. The most insecure south and central regions of Somalia are largely no-go areas for foreign
aid workers and most aid operations are managed remotely from neighbouring Kenya.
In 2011 drought and conflict manifested in a major food security crisis, which breached famine
thresholds in six parts of southern Somalia.
Following a series of kidnappings of foreigners in Kenya attributed to al-Shabab, the Kenyan
Government launched attacks into Somalia in late 2011, leading to further displacement and
restrictions in humanitarian access.
The semi-autonomous regions of Somaliland and Puntland meanwhile, are relatively stable and
consequently host large numbers of displaced persons.
Global Humanitarian Assistance Title
5
How much?
Humanitarian aid to Somalia reached US$1.3 billion in 2011.
Figure 6: Humanitarian aid to Somalia, 2009-2011
Source: Development Initiatives based on UN OCHA FTS data
In addition, just under US$460 million was spent on operations to assist Somali refugees in
neighbouring Djibouti, Ethiopia and Kenya that year.
Figure 7: Humanitarian aid to Somali refugees in neighbouring countries, 2009-2011
Humanitarian aid spent in the following countries on operations to assist Somali refugees 2009 2010 2011
3yrs
Djibouti 2.2
0.5
16.2
31.7
Ethiopia 34.9
17.9
146.9
201.5
Kenya 156.8
106.5
296.7
624.6
Grand Total 193.9
124.9
459.8
857.8
Source: Development Initiatives based on UN OCHA FTS data
6 Global Humanitarian Assistance Basic concepts, notes and definitions
How does this break down?
Government donors have provided the largest share of humanitarian aid to Somalia, but in 2011,
private donors substantially increased their contributions.
Figure 8: Humanitarian aid to Somalia by donor source, 2009-2011
Humanitarian expenditure in Somalia (US$ million)
2009 2010 2011 3yrs
Governments 351.1
271.6
932.9
1,555.6
Private individuals and organisations 48.4
1.4
131.4
181.2
Funds, foundations and fundraising 47.3
64.4
124.5
236.2
- of which Central Emergency Response Fund (CERF) 27.3
33.2
53.0
113.5
- allocation of unearmarked funds by UN agencies (OCHA, WFP, UNDP, UNICEF)
17.9
29.8
48.1
95.8
Carry-over (donors not specified) 216.7
152.5
88.5
457.7
Other (donors not specified) 0.4
2.6
48.0
50.9
Total 664
492
1,325
2,482
Source: Development Initiatives based on UN OCHA FTS data
More commentary to be provided here in subsequent draft, outlining: number of governments; types
of private individuals and organisations etc.
Figure 9: Types of humanitarian donor to Somalia, 2011
Humanitarian contributions to Somalia (US$) 2009 2010 2011 3yrs 2009-2011
OECD DAC governments 78.3% 80.0% 64.6%
70.3%
Other governments 0.3% 0.5% 13.9%
8.5%
Private individuals and organisations 10.8% 0.4% 11.1%
9.2%
Funds, foundations and fundraising bodies 10.6% 19.1% 10.5%
12.0% Note: these shares are worked out on the basis of overall totals that do not include ‘carry over’ and ‘other (donor unspecified)’ shown in Figure 6 [Source: Development Initiatives based on UN OCHA FTS data]
Global Humanitarian Assistance Title
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Who were the largest humanitarian donors in 2011?
The US, UK and EU institutions have consistently been the leading contributors of humanitarian aid
to Somalia.
Figure 10: Top 30 humanitarian contributions to Somalia, 2011
2009 2010 2011
3yrs, 2009-2011 US$m
United States 99,597,879 29,405,195
130,991,064
259,994,138 260.0
United Kingdom 18,666,244 28,198,146
128,363,109
175,227,499 175.2
European Commission 57,671,127 54,222,571
112,655,345
224,549,043 224.5 Turkish Red Crescent Society appeal
60,015,661
60,015,661 60.0
Saudi Arabia
58,844,000
58,844,000 58.8
Australia 1,504,676 3,830,450
56,859,078
62,194,204 62.2 Central Emergency Response Fund (CERF) 27,314,468 33,219,558
52,953,336
113,487,362 113.5
Turkey
49,200,000
49,200,000 49.2
Sweden 17,369,869 10,891,429
40,465,556
68,726,854 68.7
Japan 20,774,793 23,476,470
39,731,072
83,982,335 84.0
Norway 16,722,500 14,599,904
35,745,793
67,068,197 67.1
Canada 25,978,074 2,157,598
35,412,701
63,548,373 63.5
Denmark 10,561,190 10,321,051
32,589,901
53,472,142 53.5
Germany 15,334,675 12,844,778
31,376,740
59,556,193 59.6
Netherlands 14,492,431 8,037,796
22,313,573
44,843,800 44.8
Switzerland 4,800,605 8,238,905
21,806,594
34,846,104 34.8 UNICEF National Committees 1,218,709 1,186,940
18,433,519
20,839,168 20.8
United Arab Emirates 618,947 1,253,220
17,551,993
19,424,160 19.4
China
16,000,000
16,000,000 16.0
France 6,161,956 2,447,619
15,894,286
24,503,861 24.5
Italy 6,729,186 13,272,541
13,669,477
33,671,204 33.7
Spain 16,221,635 37,240,981
12,277,416
65,740,032 65.7
Kuwait
11,940,000
11,940,000 11.9
Austria
10,646,717
10,646,717 10.6
Ireland 6,848,296 4,234,018 20.0
8 Global Humanitarian Assistance Basic concepts, notes and definitions
8,926,386 20,008,700
Private and individuals to Save the Children
7,579,121
7,579,121 7.6
Finland 4,666,014 5,146,325
5,969,718
15,782,057 15.8
Qatar
5,653,689
5,653,689 5.7
Belgium 3,469,261
5,096,689
8,565,950 8.6
OECD DAC government
Other government
Funds, foundations and fundraising bodies
Source: Development Initiatives based on UN OCHA FTS data
Global Humanitarian Assistance Title
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Who were the largest recipient agencies of humanitarian funds for Somalia in 2011?
Figure 11: Top 30 agency recipients of humanitarian contributions to Somalia, 2011
Top recipient agencies, 2011 (US$m) 2009 2010 2011 3yrs
UN World Food Programme (WFP) 394.9 249.1 297.1
941.0
UNICEF 41.0 26.4 246.5
313.9
ICRC 52.9 17.6 112.0
182.5
Common humanitarian fund (CHF) - 20.5 90.8
111.3
UN Food & Agriculture Organization (FAO) 13.2 9.1 66.1
88.4
Turkish Red Crescent Society - - 60.0
60.0
UNHCR 28.1 18.4 34.1
80.6
Save the Children 4.3 3.8 25.2
33.4
UN World Health Organization (WHO) 2.8 5.7 19.5
28.0
Danish Refugee Council 10.2 15.3 18.4
43.9
OXFAM GB 3.7 6.1 15.4
25.2
UN OCHA 5.3 6.5 11.7
23.4
Norwegian Refugee Council 4.1 7.7 11.3
23.1
Concern Worldwide 2.8 4.5 11.1
18.4
International Organization for Migration 3.0 3.0 10.8
16.9
Kuwait Red Crescent Society - - 10.0
10.0
Red Crescent Society of the United Arab Emirates 0.6 0.1 6.5
7.1
Horn Relief 1.6 3.1 6.0
10.7
Cooperazione Internazionale - COOPI 1.3 6.2 6.0
13.4
Action Contre la Faim - 3.0 4.5
7.5
ACF - France - 1.7 4.1
5.8
Danish Red Cross - - 4.0
4.0
CARE International 17.0 2.9 3.8
23.7
Diakonie Emergency Aid 2.3 2.7 3.7
8.7
Norwegian Church Aid 1.1 1.3 3.5
6.0
Solidarités International 4.3 0.5 3.3
8.1
OXFAM Canada - - 3.3
3.3
Agency for Technical Cooperation and Development - 0.5 2.9
3.5
HALO Trust 1.7 2.3 2.9
6.8
United Nations Development Programme 1.1 8.3 2.5
11.8
Source: Development Initiatives based on UN OCHA FTS data
10 Global Humanitarian Assistance Basic concepts, notes and definitions
Aid investments in tackling the root causes of Somalia’s crises:
Investments in food security
Despite the chronic and recurrent nature of nutrition crises in Somalia, investments in food security-
related sectors have been overwhelmingly commodity-based and targeting emergency needs.
Investments in agriculture account for just 0.8% of the total invested in food security-related sectors
in the five year period between 2006 and 2010, compared with 26.4% for all sub-Saharan African
countries.
Figure 12: Breakdown of funding for food security related sectors to Somalia, 2005-2010
Source: Development Initiatives based on OECD DAC CRS data
Official/ODA-eligible security sector funding
ODA investments in governance, peace and security have increased five-fold from US$10.8 million in
2005 to US$56.0 million – 18.5% of total ODA – in 2010 as governments increased support for
policing and justice, including support to the detention and prosecution of suspected pirates.
Figure 13: ODA investments in governance, peace and security sectors, 2006-2010
Source: Development Initiatives based on OECD DAC CRS data
Global Humanitarian Assistance Title
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The leading government donors of bilateral ODA-eligible security and governance assistance are the
UK, European Union (EU) institutions and the US, who have collectively provided 53% of the total
funding in the five year period between 2006 and 2010.
Several UN-managed trust funds have been established to channel donor contributions to support
the security sector, which have attracted contributions from a broad range of governments, though
the overall levels of contributions are relatively modest.
12 Global Humanitarian Assistance Basic concepts, notes and definitions
Figure 14: Contributions to UN-managed trust funds for security-related activities by donor, 2009-2011
UN trust fund for
peacebuilding
Trust fund for Somali
transitional security
institutions
Trust fund to support
initiatives of states
countering piracy off the
coast of Somalia
(US$m) (US$m) (US$m)
Total 3.0 22.3 12.0
Belgium 0.1
Cyprus 0.1
Denmark 0.4
Finland 0.7
France 0.6
Germany 1.0
Greece 0.1
Ireland 0.0
Italy 1.6 0.3
Japan 20.0 1.5
Korea 0.1
Kuwait 1.0
Luxemburg 1.0
Netherlands 1.4
Norway 0.4 0.7 2.0
Philippines 0.0 0.3
Qatar 0.1
Sweden 0.2 0.1
Switzerland 0.1
Turkey 0.3 0.1
United Arab Emirates 1.0
UK 0.7
US 1.2
UNODC 0.2
Source: UNSOA, UNODC
Global Humanitarian Assistance Title
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Tackling insecurity by other means Far larger sums have been invested in efforts to promote security in Somalia, which do not qualify as
ODA. Much of this expenditure is not publicly declared and is therefore difficult to track. Our figures
therefore only represent a partial picture of the total international investment.
The channels for security engagement in Somalia are broadly: support to Somali security institutions
(including those in Puntland and Somaliland); support to the UN-authorised, AU peacekeeping
mission, AMISOM, which has been deployed since 2007; anti-piracy operations permitted under UN
Security Council Resolution 1816 (2008); and non-UN-authorised state-led military operations.
Figure 15: International modes of engaging with insecurity
Source: Development Initiatives
14 Global Humanitarian Assistance Basic concepts, notes and definitions
Support to policing is typically allowable as ODA, but many other areas are not, including most
funding for peacekeeping operations.2 Governments often do not declare security related or military
expenditures. The cost of military operations in Somalia by Ethiopia, Kenya and the United States for
example, is not currently known.
Relatively little is known about the costs of military and naval anti-piracy operations, though it is
considerable. In excess of thirty nations are thought to have deployed ships in 2011, as part of the
EU-led Operation Atalanta, NATO-led Operation Ocean Shield, US-led Combined Maritime Forces
Combined Task Force (CTF) 151, or in independent operations, at an estimated cost of US$1.27
billion.3
2 The OECD DAC permits 6% of contributions to multilateral peacekeeping to be counted as ODA
http://www.oecd.org/dataoecd/21/21/34086975.pdf 3 The Economic Cost of Somali Piracy, 2011, Working Paper, One Earth Future Foundation, Oceans Beyond
Piracy programme, 2012, http://oceansbeyondpiracy.org/cost-of-piracy/economic
Global Humanitarian Assistance Title
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Funding AMISOM
Unlike UN peacekeeping missions, AU missions do not automatically have the advantage of a secure
source of financing. The African Union (AU) Mission in Somalia (AMISOM) therefore receives
financial support via a variety of mechanisms and sources including: assessed contributions to the
UN peacekeeping budget; bilateral voluntary contributions to an UNSOA-managed trust fund for
AMISOM; through bilateral support from government donors direct to the AU and via bilateral
contributions to troop contributing countries.
Figure 16: Modes of international support to AMISOM
Source: Development Initiatives
16 Global Humanitarian Assistance Basic concepts, notes and definitions
The UN has provided a logistics support package to AMISOM via the UN Support Office for AMISOM
(UNSOA), which is financed by assessed contributions to the UN peacekeeping budget and from
discretionary contributions to the UNSOA-managed Trust Fund for AMISOM.
The largest cash contributors to AMISOM are the US, EU institutions and the UK. The EU institutions
provide support directly to the AU, mostly for the payment of personnel allowances.
The US supports troop-contributing countries directly as well as providing bilateral support directly
to the AU and via their assessed contributions to the UN peacekeeping budget.
The UK contributes to the AMISOM trust fund, provides some support directly to Uganda and
Burundi and to the AU Commission. This is in addition to financing routed via their assessed
contributions to the UN peacekeeping budget and to the EU. The contributions of the US and UK are
therefore far greater when their contributions via the UN (and EU for the UK) are taken into
consideration.
Figure 17: Contributions to AMISOM from bilateral and multilateral donor sources, 2007-2011 (US$m)
Source: UK Foreign and Commonwealth Office, EU External Action Service, United States State Department, United Nations Support Office for AMISOM
Other government donors contribute either indirectly through their assessed contributions to the
UN and EU or in some cases with additional discretionary bilateral contributions to the Trust Fund
for AMISOM. Contributions to the trust fund for AMISOM have been relatively modest in
comparison with other funding sources. The UK, moreover, had provided 48.2% of the total funds
contributed to the trust fund up to the end of 2011.
Global Humanitarian Assistance Title
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Figure 18: Contributions to the Trust Fund for AMISOM, 2009-2011
Contributions Share of total
contributions
(US$m) %
Total 46.8 100%
UK 22.6 48.2%
Japan 9.4 20.0%
Denmark 6.2 13.2%
Germany 3.8 8.1%
Saudi Arabia 2.1 4.4%
Turkey 1.0 2.2%
Korea 0.5 1.1%
India 0.5 1.1%
Australia 0.4 0.9%
Sweden 0.3 0.6%
Czech Republic 0.2 0.3%
Malta 0.0 0.0%
Source: United Nations Support Office for AMISOM
18 Global Humanitarian Assistance Basic concepts, notes and definitions
Basic concepts, notes and definitions
Financial Tracking Service (FTS)
The Financial Tracking Service (FTS) is a global, real-time database that records bilateral and in-kind
humanitarian aid. The FTS is managed by the UN Office for the Coordination of Humanitarian Affairs
(OCHA). FTS data is provided by donor and recipient organisations.
OECD Development Assistance Committee (DAC) aid statistics
The OECD groups 30 member countries ‘committed to democratic government and the market
economy’ and provides a forum where governments can compare and exchange policy experiences,
identify good practices and promote decisions and recommendations.
The DAC is the Development Assistance Committee of the OECD. Its members are: Australia, Austria,
Belgium, Canada, Denmark, Finland, France, Germany, Greece, Ireland, Italy, Japan, Korea,
Luxembourg, the Netherlands, New Zealand, Norway, Portugal, Spain, Sweden, Switzerland, the
United Kingdom, the United States and the European Commission. These members have ‘agreed to
secure an expansion of aggregate volume of resources made available to developing countries and
to improve their effectiveness’.
Korea joined the DAC in January 2010
Official Development Assistance (ODA)
ODA is a grant or loan from an ‘official’ source to a developing country (defined by the OECD) or
multilateral agency (defined by the OECD) for the promotion of economic development and welfare.
It is reported by members of the DAC, along with several other government donors and institutions,
according to strict criteria each year. It includes sustainable and poverty-reducing development
assistance (for sectors such as governance and security, growth, social services, education, health
and water and sanitation.
Global Humanitarian Assistance Title
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References
Awad, M., Dagane, A., Hansen, P., Hammond, L., Horst, C., Menkhaus, K., Obare, L., (2012), Cash and
Compassion: The Role of the Somali Diaspora in Relief, Development and Peace-building, United
Nations Development Programme http://www.so.undp.org/docs/Cash%20and%20compassion.pdf
Shortland, A., (2012) Treasure Mapped: Using Satellite Imagery to Track the Developmental Effects of Somali Piracy, Africa Programme Paper: AFP PP 2012/01, Chatham House, London, January 2012 http://www.chathamhouse.org/sites/default/files/public/Research/Africa/0112pp_shortland.pdf
The Economic Cost of Somali Piracy, 2011, Working Paper, One Earth Future Foundation, Oceans Beyond Piracy programme, 2012, http://oceansbeyondpiracy.org/cost-of-piracy/economic
About us Global Humanitarian Assistance is a Development Initiatives programme that receives grant funding
from the governments of Canada, Denmark, the Netherlands, Sweden and the United Kingdom for
its ongoing analysis of aid flows to people living in humanitarian crises.
In addition to the role we play in collating, analysing and communicating ‘humanitarian’ flows
reported in the official aid statistics reported to the Development Assistance Committee (DAC) and
UN OCHA Financial Tracking Service (FTS), our work allows us to provide insight and assistance on
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of its commitment to the elimination of absolute poverty by 2025.
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