# Haiti Earthquake: Crisis and Response > Briefs, arguments, decisions, and more. URL: https://www.frixlaw.com/law-library/documents/crs%3AR41023 ## Record - **Collection:** Congressional research report - **Document type:** CRS Report - **Published:** May 6, 2010 - **Citation:** R41023 ## Text Haiti Earthquake: Crisis and Response (name redacted) Specialist in International Humanitarian Policy (name redacted) Specialist in Latin American Affairs May 6, 2010 Congressional Research Service 7-.... www.crs.gov R41023 CRS Report for Congress Prepared for Members and Committees of Congress Haiti Earthquake: Crisis and Response Summary The largest earthquake ever recorded in Haiti devastated parts of the country, including the capital, on January 12, 2010. The quake, centered about 15 miles southwest of Port-au-Prince, had a magnitude of 7.0. A series of strong aftershocks have followed. Experts estimate the earthquake caused $8 to $14 billion in damage. Approximately 3 million people, roughly onethird of the overall population, have been affected by the earthquake with estimates ranging from 1.2 to 2 million people displaced. The government of Haiti is reporting an estimated 230,000 deaths and 300,600 injured. In the immediate aftermath of the earthquake, President Rene Préval described conditions in his country as “unimaginable,” and appealed for international assistance. As the humanitarian relief operation continues, the government is struggling to restore the institutions needed for it to function, ensure political stability, and address long-term reconstruction and development planning. Prior to the earthquake, the international community was providing extensive development and humanitarian assistance to Haiti. With that assistance, the Haitian government had made significant progress in recent years in many areas of its development strategy. The destruction of Haiti’s nascent infrastructure and other extensive damage caused by the earthquake will set back Haiti’s development significantly. A post-disaster needs assessment estimated the total value of recovery and reconstruction needs to be $11.5 billion. The Haitian government presented an action plan for reconstruction and development at a global donors’ conference held on March 31, 2010. Donors pledged over $5 billion for the first 18 months of Haiti’s reconstruction. The United States pledged $1.2 billion. Extra-constitutional rule will begin after May 10, when most parliamentarians’ terms expire; President Préval will probably rule by decree after that. There is no timetable for new parliamentary elections. The sheer scale of the relief effort in Haiti has brought together tremendous capacity and willingness to help. As the rainy and hurricane seasons begin, the massive humanitarian relief operation underway in Haiti is focused on providing waterproof emergency shelter, improving sanitation and meeting the basic needs of the displaced and other vulnerable Haitians. The relief effort is expected to last for many months. On January 12, 2010, President Barack Obama assembled heads of U.S. agencies to begin working immediately on a coordinated response to the disaster, with the U.S. Agency for International Development through the Office of Foreign Disaster Assistance as the lead agency. On January 14, the Administration announced $100 million in humanitarian assistance to Haiti to meet the immediate needs on the ground. As of April 30, 2010, total humanitarian funding provided to Haiti for the earthquake had reached over $1 billion. In the FY2010 supplemental request, the Administration is seeking a total of $2.8 billion for Haiti. Of that, $1.5 billion is for relief and disaster assistance, which would reimburse U.S. government agencies for services provided and for funds already obligated for ongoing relief activities. The request for recovery and reconstruction is $1.1 billion. This is primarily for new activities, focused on urgent infrastructure repairs, especially in the energy and agricultural sectors; critical health care; governance; and security. The Department of Homeland Security has temporarily halted the deportation of Haitians and granted Temporary Protected Status for 18 months to Haitian nationals in the United States as of January 12, 2010. Congressional concerns include budget priorities and oversight, burdensharing, immigration, tax incentives for charitable donations, trade preferences for Haiti, and helping constituents with adoptions and other issues. Several congressional committees have held hearings on Haiti. The focus of this report is on the immediate crisis in Haiti as a result of the earthquake, the U.S. and international response to date, and long-term implications of the earthquake. Related legislation includes P.L. 111-117, P.L. 111-126, P.L. 111-158,H.R. 144, H.R. 264, H.R. 417. H.R. 1567, H.R. 3077, H.R. 4206, H.R. 4577, H.R. 4616, H.R. 4952, H.R. 4961, H.R. 5006, H.R. 5160, H.R. 5171, S. 2949, S. 2961, and S. 2978, S. 2998, S. 3202, S. 3275, and S. 3317. Congressional Research Service Haiti Earthquake: Crisis and Response Contents Recent Developments..................................................................................................................1 Current Conditions......................................................................................................................1 Preliminary Numbers at a Glance ..........................................................................................3 Haitian Government Response ....................................................................................................4 The Government’s New Action Plan......................................................................................6 Extra-Constitutional Rule Begins after May 10......................................................................7 U.N. Stabilization Mission in Haiti (MINUSTAH) ......................................................................7 Humanitarian Relief Operation.................................................................................................. 11 Overall Status of the Relief Effort ....................................................................................... 11 United Nations Humanitarian Response .............................................................................. 12 Humanitarian Relief Sectors: Recent Developments ............................................................ 13 Haiti’s Humanitarian Needs in Context................................................................................ 15 Other Humanitarian Actors.................................................................................................. 16 U.S. Humanitarian Assistance ............................................................................................. 17 U.S. Humanitarian Assistance to Haiti FY2009-FY2011, Prior to the Earthquake .......... 17 U.S. Humanitarian Assistance to Haiti following the Earthquake ................................... 17 FY2010 Supplemental Humanitarian Relief Funding for Haiti....................................... 18 USAID ......................................................................................................................... 18 Department of Defense: Operation Unified Response .................................................... 19 Non-Governmental Organizations (NGOs).................................................................... 20 Overall U.S. FY2010 Assistance ......................................................................................... 21 FY2010 Supplemental Funding Request for Haiti.......................................................... 21 International Humanitarian Funding .......................................................................................... 21 U.N. Consolidated Appeals Process..................................................................................... 21 Other Pledges and Contributions ......................................................................................... 22 Donor Contributions and Pledges ........................................................................................ 22 Private Contributions .......................................................................................................... 23 Recovery Planning among Donors and Haiti ....................................................................... 23 The Role of the United Nations and Other Organizations..................................................... 24 Response of International Financial Institutions......................................................................... 25 Multilateral Lending ........................................................................................................... 25 World Bank................................................................................................................... 25 Inter-American Development Bank ............................................................................... 25 International Monetary Fund ......................................................................................... 26 Debt Relief Prior to the Earthquake..................................................................................... 26 World Bank................................................................................................................... 26 Bilateral Creditors......................................................................................................... 26 Debt Relief Since the Earthquake ........................................................................................ 27 Inter-American Development Bank ............................................................................... 27 World Bank................................................................................................................... 27 International Fund for Agriculture and Development ..................................................... 27 International Monetary Fund ......................................................................................... 28 The IMF and Haiti’s Financial Sector .................................................................................. 28 Debt Relief in the FY2010 Supplemental Funding Request ................................................. 28 Regional Response.................................................................................................................... 29 Congressional Research Service Haiti Earthquake: Crisis and Response Political and Economic Situation in Haiti .................................................................................. 29 Conditions in Haiti Before the Earthquake........................................................................... 29 Political Conditions............................................................................................................. 30 The National Assembly and the Question of 2010 Elections .......................................... 31 Socioeconomic Conditions Prior to the Earthquake ....................................................... 31 Long-term Reconstruction Strategy ........................................................................................... 32 Review of Haiti’s Development Strategy ............................................................................. 32 Principles of Assistance for the Reconstruction of Haiti....................................................... 33 Select Issues to be Addressed in the Long-term Reconstruction Strategy.............................. 34 Agricultural Capacity and the Environment ................................................................... 34 Decentralization of Population and Services .................................................................. 34 Education...................................................................................................................... 35 Energy .......................................................................................................................... 35 Health Care................................................................................................................... 35 Job Creation.................................................................................................................. 36 Trade and Exports ......................................................................................................... 36 Recovery and Reconstruction Funding in the FY2010 Supplemental Request ...................... 36 Congressional Concerns ............................................................................................................ 36 FY2010 Supplemental Funding Request for Haiti................................................................ 37 Budget Priorities ................................................................................................................. 38 Burdensharing and Donor Fatigue ....................................................................................... 38 Coordinating the Relief Response in Haiti ........................................................................... 39 Elections in Haiti ................................................................................................................ 39 Immigration, Adoption........................................................................................................ 40 Medical Evacuation ............................................................................................................ 41 Tax Incentives for Charitable Donations .............................................................................. 43 Trade Preferences................................................................................................................ 43 Constituent Concerns .......................................................................................................... 44 Legislation in the 111th Congress ............................................................................................... 44 Figures Figure 1. Haiti Earthquake Epicenter ......................................................................................... 10 Figure A-1. An Estimate of the Population in Haiti and Surrounding Areas Exposed to Ground Shaking Caused by the January 12, 2010, Magnitude 7.0 Earthquake......................... 51 Figure B-1. Movement Out of Port-au-Prince ............................................................................ 53 Figure C-1. Click and type title, or delete ................................................................................. 54 Figure D-1. USG Humanitarian Assistance................................................................................ 55 Tables Table 1. U.S. Humanitarian Assistance to Haiti FY2009-FY2011 .............................................. 17 Table 2. FY2010 Humanitarian Funding Provided to Haiti for the Earthquake ($US)................. 18 Table G-1. Regional Donors to Haiti Relief Efforts.................................................................... 64 Congressional Research Service Haiti Earthquake: Crisis and Response Appendixes Appendix A. Exposed Population .............................................................................................. 51 Appendix B. Haiti Population Movement .................................................................................. 53 Appendix C. Emergency Shelter Gap: April 19, 2010 ................................................................ 54 Appendix D. U.S. Earthquake Assistance to Haiti...................................................................... 55 Appendix E. The U.S. Government Emergency Response Mechanism for International Disasters ................................................................................................................................ 56 Appendix F. Operation Unified Response: U.S. Military Units Participating .............................. 58 Appendix G. Donor Contributions and Pledges to Haiti in Response to the January 12, 2010, Earthquake ................................................................................................................... 59 Appendix H. How to Search for or Report on Individuals in Haiti ............................................. 67 Appendix I. How to Contribute to Relief Efforts........................................................................ 70 Appendix J. Links for Further Information ................................................................................ 71 Contacts Author Contact Information ...................................................................................................... 74 Key Policy Staff........................................................................................................................ 75 Congressional Research Service Haiti Earthquake: Crisis and Response Recent Developments • A major global donors’ conference was held March 31, 2010, in New York. Donors pledged over $5 billion for the first 18 months of Haiti’s reconstruction. The United States pledged $1.2 billion. • The Haitian government presented an action plan for reconstruction and development, and a Post Disaster Needs Assessment that estimated the total value of recovery and reconstruction needs to be $11.5 billion. • The Obama Administration requested $2.8 billion in FY2010 supplemental funding for relief and reconstruction support for Haiti. • Extra-constitutional rule will begin after May 10, when most parliamentarians’ terms expire; President Préval will probably rule by decree after that. Haiti passed a State of Emergency Law on April 20 giving the President broad powers. The international community is urging Haiti to hold legislative and presidential elections in November 2010. • Humanitarian assistance is focused on providing waterproof emergency shelter, improving sanitation and meeting the basic needs of the displaced and other vulnerable Haitians. The relief effort is expected to last for many months. • Most U.S. military forces will withdraw from Haiti by about June 1, 2010. Current Conditions The largest earthquake ever recorded in Haiti devastated parts of the country, including the capital, on January 12, 2010. The quake, centered about 15 miles southwest of Port-au-Prince, had a magnitude of 7.0. A series of strong aftershocks have followed.1 The damage was severe and catastrophic. Thousands of buildings collapsed, leaving unknown numbers of people trapped, and hundreds of thousands of people homeless in the streets. Estimates of casualties are constantly being updated. According to the Secretary-General of the United Nations, “[o]f Haiti’s 9 million people, initial reports suggest roughly a third may be affected by the disaster.”2 The Inter-American Development Bank (IDB) issued a study on February 11 estimating the damage caused by the earthquake to be at least $8 billion, and as high as $14 billion. 3 One of the report’s authors, economist Andrew Powell, said that, “This disaster, given the size of Haiti ... is the most devastating catastrophe that a country has experienced possibly ever.”4 The report compared the damage to other catastrophes, finding, for example, that the earthquake’s damage 1 U.S. Geological Survey http://earthquake.usgs.gov/earthquakes/recenteqsww/Quakes/us2010rja6.php, January 13, 2010. The largest earthquake ever recorded was the 9.5 magnitude 1960 Chile earthquake, see http://earthquake.usgs.gov/earthquakes/world/historical_mag.php. 2 United Nations, Secretary-General, Briefing General Assembly on Haiti Disaster, Announces Release of $10 million in emergency Funds to Kick-Start Response, SG/SM/12701; GA/10912, New York, NY, January 13, 2010. 3 Eduardo A. Cavallo, Andrew Powell, and Oscar Becerra, Estimating the direct economic damage of the Earthquake in Haiti, Inter-American Development Bank, February 11, 2010, available at http://idbdocs.iadb.org/wsdocs/ getdocument.aspx?docnum=35072649. 4 Mary Beth Sheridan, “Haiti earthquake damage estimated up to $14 billion,” Washington Post, February 17, 2010. Congressional Research Service 1 Haiti Earthquake: Crisis and Response amounted to 117% of Haiti’s annual economic output, while the 2004 tsunami damage amounted to 2% of Indonesia’s annual economic output. The Haiti Post Disaster Needs Assessment, conducted by Haiti and international institutions, reported similar findings, estimating the total value of recovery and reconstruction needs to be $11.5 billion.5 All of this damage was sustained in a country that the United Nations had already designated as one of the 50 “least developed countries” in the world, facing a higher risk than other countries of failing to come out of poverty, and therefore needing the highest degree of attention from the international community.6 Recovery efforts have been made extremely difficult by the loss of personnel and infrastructure that would be part of a recovery effort. Among the missing and dead were Haitian government officials and international aid personnel, including many U.N. personnel. Housing, hospitals, schools, and many government buildings collapsed. Basic services such as electricity and water were almost completely disrupted. Major transportation routes were damaged and/or blocked. The Port-au-Prince airport control tower was destroyed; the airport continued to function, and air traffic control authority was quickly transferred to U.S. personnel with portable radar. On February 18, commercial air traffic in and out of Port-au-Prince resumed. As of early March, relief flights into Haiti had dropped from a peak of 160 flights per day to an average of 75. The main port suffered heavy damage; U.S. troops are repairing the port facilities. The port is expected to handle 1,500 containers of relief supplies once it is fully repaired. The use of airfields and ports in the Dominican Republic, with humanitarian corridors over land, have also eased the burden on Haitian facilities. Haitian government officials continue to function in makeshift conditions. The roof of the Presidential Palace collapsed and the President’s private residence was also destroyed. President Préval was initially unable to communicate with his Cabinet and has been working out of a small room in a police headquarters. The Parliament building collapsed, with some Members trapped inside and others killed. The Parliament has convened in the National Police Academy. Twentyeight of 29 Ministry buildings were destroyed. The United Nations, which already had a strong presence in Haiti, is at the forefront of on-theground response for security and humanitarian assistance, and suffered heavy losses as well. Its headquarters collapsed, and 101 U.N. personnel are confirmed dead and 6 others remain unaccounted for. The head of the U.N. Stabilization Mission in Haiti (MINUSTAH), Special Representative Hedi Annabi, and his deputy, Luiz Carlos da Costa, were among the dead. U.N. Secretary General Ban Ki-moon sent Assistant Secretary General Edmond Mulet to Haiti on January 13 to direct the U.N.’s immediate response efforts; Mulet is a former Special Representative of the Secretary General for MINUSTAH. Prior to the earthquake, the international community was providing extensive development and humanitarian assistance to Haiti. With that assistance, the Haitian government had made 5 Government of Haiti, the United Nations, the European Union, the Inter-American Development Bank, and the World Bank, “Haiti Post Disaster Needs Assessment: draft executive summary,” March 10, 2010. Available at http://www.haitisantodomingo2010.org/hsd2010/content/documents; and World Bank, Haiti Damage and Need Assessment: World Bank Partners with Global Network of Scientists and Experts, Press Release No. 2010/240/LCR, Washington, DC, January 26, 2010. 6 United Nations Office for Least Developed Countries. Facts About Least Developed Countries (LDCs) available at http://www.unohrlls.org/UserFiles/File/Publications/Factsheet.pdf, accessed January 15, 2010. Congressional Research Service 2 Haiti Earthquake: Crisis and Response significant progress in recent years in many areas of its development strategy, including security; judicial reform; macroeconomic management; procurement processes and fiscal transparency; increased voter registration; and jobs creation. It had also made progress in providing broader access to clean water and other services. Parliamentary elections scheduled for February 2010 have been delayed. There is tentative agreement that Haiti will hold joint parliamentary and presidential elections in November 2010. President Préval’s term will end in February 2011, and he is not eligible to run for reelection. The destruction of Haiti’s nascent infrastructure and other extensive damage caused by January’s earthquake will set back Haiti’s development significantly. U.N. Special Envoy and former President Bill Clinton said that Haiti’s long-term development plans “will need to be amended ... but they cannot be abandoned.”7 Soon after the earthquake, the government of Haiti and the international donor community held meetings and conferences to begin planning a long-term strategy for Haitian recovery. A major global donors’ conference was held March 31, 2010, in New York at which 48 countries, multilateral institutions, and a coalition of non-governmental organizations pledged $5.3 billion for the first 18 months of Haiti’s reconstruction, part of nearly $10 billion pledged toward longterm reconstruction efforts. The IDB damage assessment stated that donor coordination will be key in any reconstruction effort. The report further noted that there are different models for coordination, but that however it is coordinated, “[a] single executing agency with appropriate powers, transparency and accountability to the Haitian Government and donors would be helpful” in achieving the needed coordination on the ground.8 To that end, Haiti and the international donor community have established a Multi-Donor Trust Fund to monitor, coordinate, and distribute funds. The Obama Administration is requesting $2.8 billion in FY2010 supplemental funding to cover costs associated with relief and reconstruction support for Haiti. The U.S. pledge of $1.2 billion made at the donors conference is included in that request. Preliminary Numbers at a Glance It is estimated that 3 million people, approximately one-third of the overall population, have been affected by the earthquake. The government of Haiti is reporting an estimated 230,000 deaths (2% of the population), 300,600 injured and 383 missing.9 Earlier reports indicated there were 1.2 million Internally Displaced Persons (IDPs), which included 700,000 people displaced in the Port-au-Prince area, many without shelter, and more than 597,000 people who left Port-au-Prince for rural areas.10 More recent numbers indicate a higher number of IDPs with a possible total of over 2 million displaced in Haiti. This number includes 1.69 million displaced in settlements in Port-au-Prince and more than 300,000 in areas outside the city. Much smaller numbers of Haitians have left for the Dominican Republic, nearby islands, and the United States. 7 Bill Clinton, “How We Can Help Rebuild Haiti’s Promise,” The Washington Post, January 14, 2010. Cavallo et al., op. cit., pp. 11-12. 9 Estimates of the death toll vary; most reports now indicate 200,000 or more dead. 10 Initially, the government of Haiti facilitated the departure of several hundred thousand people from Port-au-Prince to outlying areas. An unknown number of individuals may have used private means to leave the city and seek shelter. 8 Congressional Research Service 3 Haiti Earthquake: Crisis and Response According to the State Department, a total of 16,000 Americans in Haiti have been accounted for, and 16,704 U.S. citizens have been evacuated. There are 103 reported deaths of U.S. citizens due to the earthquake. Now that commercial airlines are operating out of Port-au-Prince, the U.S. embassy is no longer assisting with citizen evacuations. Aftershocks Pose Future Risk A series of aftershocks has followed the main January 12 earthquake. In a February 23, 2010 statement, the USGS indicated that the frequency of aftershocks should diminish with time, but the threat of additional damaging earthquakes remains. The USGS noted that buildings in the Port-au-Prince area will continue to be at risk from strong earthquake shaking, and that the fault responsible for the January 12 earthquake still stores sufficient strain to be released as a large, damaging earthquake during the lifetime of structures built during the reconstruction effort. The USGS gave the following probabilities for aftershock activity in Haiti: • magnitude 5 or greater earthquake = 90% probability over 1 year, 80% over 90 days, 55% over 30 days; • magnitude 6 or greater earthquake = 25% probability over 1 year, 15% over 90 days, 7% over 30 days; • magnitude 7 or greater earthquake = 3% probability over 1 year, 2% over 90 days, 1% over 30 days. The USGS based its probability estimates on techniques developed to assess earthquake hazards in the United States. Using these techniques, the USGS estimated that the probability of a magnitude 7 or greater earthquake occurring within the next 50 years along the Enriquillo fault near Port-au-Prince is between 5% and 15%. The range of probabilities reflects the current understanding of the seismicity and tectonics of the Haiti region. By comparison, the USGS has estimated that that the probability of a magnitude 7 or greater earthquake occurring within the next 50 years along the Hayward-Rodgers Creek fault east of San Francisco is about 15%. The USGS further asserted that the risk to new construction in Haiti from future aftershocks and strong earthquakes can be minimized through the use of earthquake-resistant design and construction practices. Tailoring the design to match the earthquake hazard likely requires applying results from a comprehensive earthquake hazard assessment, which currently does not exist for Haiti. This is further complicated by the need for buildings to withstand high winds from hurricanes, which are a more frequent hazard to Haiti than earthquakes. Constructing buildings that are both hurricane and earthquake resistant could pose a challenge to short- and long-term rebuilding efforts in Haiti. Building construction is very important to earthquake resilience. For example, the magnitude 8.8 earthquake that struck Chile on February 27, 2010, caused only a fraction of the fatalities caused by the Haiti earthquake, in part due to the greater prevalence of earthquake-resistant buildings in Chile. Despite the occurrence of two devastating earthquakes in Haiti and Chile within less than two months of each other, worldwide earthquake activity in 2010 is not particularly unusual compared to other years. The USGS reported that an average of 16 magnitude 7 or greater—defined as major—earthquakes have occurred each year since 1900, with some years showing considerable variation. Six major earthquakes have occurred worldwide in 2010 thus far, well within the normal range according to the USGS. Sources: USGS statement, “USGS Updates Assessment of Earthquake Hazard and Safety in Haiti and the Caribbean,” February 23, 2010, at http://www.usgs.gov/newsroom/article.asp?ID=2413&from=rss_home; and USGS release. “Is Recent Earthquake Activity Unusual? Scientists Say No,” April 14, 2010, at http://www.usgs.gov/newsroom/article.asp? ID=2439. Haitian Government Response In the immediate wake of the earthquake, President Préval described conditions in his country as “unimaginable,” and appealed for international assistance. The country’s top priority was to conduct search and rescue operations for survivors. Other material priorities included an offshore vessel medical unit and electricity generation capability. The government also requested communications equipment so that government officials could better function and coordinate response efforts. As those immediate needs are met and the humanitarian relief operation continues, the government is struggling to restore the institutions needed for it to function and to address long-term reconstruction and development planning. “The first thing is political stability,” Congressional Research Service 4 Haiti Earthquake: Crisis and Response said Préval. “Secondly, we hope the international community will help us in the short-term, midterm, and long-term.”11 Prior to this disaster, the World Bank and others were working with the Haitian government to incorporate disaster risk management into Haiti’s overall development strategy and to develop its capacity for disaster response. The capacity was still in its early stages, however, and the focus of much of its risk management efforts was not geared toward earthquakes, but toward hurricanes, which are the most common cause of natural disasters on the island. The last major earthquake in Haiti was 150 years ago, in 1860. Some Haitians complain that they have seen or heard little of President Préval since the earthquake. The perception that the Haitian government was not doing enough contributed to calls by some Haitians, both in Haiti and the United States, for the United States to take control of Haiti in place of the current government in the days following the disaster. The destruction of buildings, equipment, and loss of skilled personnel has drastically reduced the ability of the government to respond rapidly. According to the Haitian Chamber of Commerce, the earthquake destroyed approximately 25,000 public and commercial buildings. Twenty-one out of 22 Ministry buildings were destroyed. Along with the buildings, government records were destroyed; re-establishing and expanding transparency in government spending will be particularly challenging. These losses, plus the difficulty of delivering and transporting material supplies, will hinder delivery of services. The already significant need for services is now vastly expanded. Haitian ministries are addressing issues such as long-term housing for those left homeless by the earthquake as they operate out of makeshift offices. Haitian authorities and international relief agencies are delivering food and water to hundreds of makeshift camps in Port-au-Prince. The government provided free transportation to evacuate people from the capital to cities not damaged by the earthquake. Interior Minister Paul Antoine Bien-Aime indicated that as many as 482,000 people may be relocated outside Port-au-Prince. 12 The Haitian government is sending officials to small cities to help officials in those communities establish priorities. Other elements of the government are working along with international actors. The Haitian National Police are contributing to maintaining security, for example, and Haitian air traffic controllers are working along with U.S. controllers at the Port-au-Prince airport. The Haitian government, the United Nations, and donor representatives met in Haiti on January 14 to coordinate their efforts, and have continued to do so at various conferences. Eighteen Haitian senators elected two commissions on January 28 to monitor aid and manage agreements with aid organizations. 11 Jacqueline Charles and Lydia Martin, “Without even a shirt, Rene Preval stays focused; President Rene Preval no longer has a palace or more than one borrowed shirt. But he survived the quake and is running his nation from a small room,” The Miami Herald, January 20, 2010. 12 Jacqueline Charles, Lesley Clark, and David Ovalle, et al., “Relief Efforts turn to long-term rebuilding,” The Miami Herald, January 21, 2010. Congressional Research Service 5 Haiti Earthquake: Crisis and Response The Government’s New Action Plan President Préval and Prime Minister Bellerive went to the March 31 international donors’conference with a 10-year recovery action plan. According to the Haiti Post Disaster Needs Assessment conducted by Haiti and international institutions, the total value of recovery and reconstruction needs is $11.5 billion.13 At the conference The Préval Administration sought a minimum of $3.9 billion for the first 18 months of Haiti’s reconstruction. The priorities the Haitian government established in the “Action Plan for the Reconstruction and National Development of Haiti”14 are: • ensuring preparedness for the 2010 rainy and hurricane seasons, especially for displaced populations; • providing assistance to the population affected by the earthquake while hastening recovery efforts with an eye to reducing dependence on foreign aid; • including environmental factors and risk and disaster management in all recovery and reconstruction activities; • actively providing employment and vocational training; • strengthening governmental authority while also decentralizing basic services, creating a social safety net for the poorest population; and • creating growth poles to support and encourage settlement of displaced populations around the country and to make Port-au-Prince less congested. Haitian government officials see the earthquake’s devastation in Port-au-Prince as an opportunity to establish a more sustainable distribution of population elsewhere in the country. Bellerive has asked international donors to aid in a massive revival of agriculture, in order to provide jobs and keep relocated Haitians in the provinces. 15 Some observers have questioned whether historical and current allegations of various levels of corruption in the Haitian government may impair short- and long-term recovery efforts.16 The government of Haiti made major progress in recent years in reducing corruption, increasing transparency, and improving fiscal management. These improvements qualified Haiti for Heavily Indebted Poor Country (HIPC) debt relief last year. In its new Action Plan, the government said 13 Government of Haiti, the United Nations, the European Union, the Inter-American Development Bank, and the World Bank, “Haiti Post Disaster Needs Assessment: draft executive summary,” March 10, 2010. Available at http://www.haitisantodomingo2010.org/hsd2010/content/documents; and World Bank, Haiti Damage and Need Assessment: World Bank Partners with Global Network of Scientists and Experts, Press Release No. 2010/240/LCR, Washington, DC, January 26, 2010. 14 Republic of Haiti, “Action Plan for the Reconstruction and National Development of Haiti,” March 2010, available at http://www.haitisantodomingo2010.org/hsd2010/content/documents. 15 Tim Padgett, “Haiti PM: We Can Rise Out of Our Postquake Squalor,” Time, February 22, 2010. Haiti’s “Action Plan for the Reconstruction and National Development of Haiti” is available at http://www.haitisantodomingo2010.org/ hsd2010/content/documents. 16 University of Colorado at Boulder, “Industry Corruption, Shoddy Construction Likely Contributed to Haiti Quake Devastation,” E Science News, January 14, 2010; Senator Loren Legarda, “Commentary: Earthquake Devastation Linked to Corruption,” Philippine Daily Inquirer, January 25, 2010; “Will Endemic Corruption Suck Away Aid to Haitians?” Reuters, January 26, 2010. Congressional Research Service 6 Haiti Earthquake: Crisis and Response the momentum of those programs must continue, and proposed the Interim Commission for the Reconstruction of Haiti, a Development Agency, and the Multi-Donor Trust Fund to improve development planning, coordination, and accountability. New concerns about transparency and oversight may also arise as the legislature ceases to function as a whole because elections have not been held. Normally, the legislature must approve federal procurement contracts, and authorize spending. Under a State of Emergency law passed by the legislature in April, the executive branch will have those powers for the next 18 months. Extra-Constitutional Rule Begins after May 10 Haiti passed a State of Emergency Law on April 20 giving the President broad powers. The terms of all of the Chamber of Deputies, and of one-third of the Senate, will expire on May 10. How the government will function after that is not entirely clear. President Préval will probably rule by decree. The remaining 19 Senators may continue to meet, however, and the Senate has the power to dismiss the Prime Minister and censure government programs. As a result, political tensions are likely to increase. The international community is urging Haiti to hold legislative and presidential elections in November 2010. Préval has promised to step down when his term expires on February 7, 2011. U.N. Stabilization Mission in Haiti (MINUSTAH)17 The U.N. Security Council created the U.N. Stabilization Mission in Haiti (MINUSTAH) on April 30, 2004, having determined that the situation in Haiti continued to be a threat to international peace and security in the region and acting under Chapter VII of the U.N. Charter. As a U.N.conducted peacekeeping operation, MINUSTAH was given a mandate under three broad areas: a secure and stable environment, the political process, and human rights. On October 13, 2009, the Council extended its mandate until October 15, 2010, “with the intention of further renewal.” The Council monitors the activities of MINUSTAH through semiannual reports made by the U.N. Secretary-General and his special representative, and also not later than 45 days before expiration of its mandate. On January 19, 2010, the U.N. Security Council increased the overall force levels of MINUSTAH “to support the immediate recovery, reconstruction and stability efforts.” The Council decided that “MINUSTAH will consist of a military component of up to 8,940 troops of all ranks and of a police component of up to 3,711 police and that it will keep the new levels of troops and police in MINUSTAH under review as necessary.”18 The limits had been set at 6,940 for the military component and 2,211 for the police component. As of April 13, 2010, the military component of MINUSTAH totaled 8,306 troops, including four engineering companies, and 2,178 police officers.19 17 Prepared by (name redacted), CRS Specialist in International Relations, and (name redacted), CRS Specialist in International Humanitarian Policy, Foreign Affairs, Defense, and Trade Division. 18 The Council resolution that created MINUSTAH is S/RES/1542 (2004). The resolution extending the mandate in October 2009 is S/RES/1892 (2009). The resolution adopted unanimously on January 19, 2010, is S/RES/1908 (2010). 19 These figures are taken from the Secretary-General’s April 2010 report to the Council; the police component consisted of 828 U.N. police and 1,350 formed police unit officers. Additional police from Bangladesh, Italy and India are expected in the coming weeks. See U.N. document S/2010/200, p. 9, para. 32. Congressional Research Service 7 Haiti Earthquake: Crisis and Response On April 28, 2010, the U.N. Security Council met to consider the situation in Haiti, especially the April 2010 report of Secretary-General Ban Ki-moon on MINUSTAH.20 This was his first report since September 1, 2009 and covered up to April 15, 2010, with a focus on events since the earthquake. Ban noted, in his report, that his Special Representative will continue to oversee the activities of the whole United Nations system and, within means and capabilities, ensure the full support of the MINUSTAH military, police and logistics components to humanitarian and recovery efforts. Ban proposed that MINUSTAH “assume the lead role in coordinating international electoral assistance in order to ensure its efficiency and avoid the duplication of efforts.” Ban observed that a “major focus of effort will be timely preparations for the 2010 presidential, legislative and municipal elections.” 21 In addition, he stated that MINUSTAH “will reconfigure the military component within the existing troop ceiling to provide additional military engineers on a surge basis.”22 Ban also recommended that the Council increase the MINUSTAH police component, adding 680 police personnel to the force levels already authorized by the Council in January 2010.23 As of May 3, 2010, the Council has not acted in response to the report of the SecretaryGeneral. The headquarters of the U.N. Stabilization Mission in Haiti (MINUSTAH) was demolished in the earthquake, with 101 U.N. staff confirmed dead. These included the Special Representative of the Secretary-General and Head of MINUSTAH Hedi Annabi and his Deputy, Luiz Carlos da Costa. On March 31, 2010, Secretary-General Ban announced the appointment of Edmond Mulet, as his Special Representative (SRSG) for Haiti and Head of MINUSTAH. Since January 14, 2010, Mr. Mulet had been acting SRSG and Head of MINUSTAH.24 On April 29, 2010, Ban announced the appointment of Kevin Kennedy (United States) as Deputy Special Representative for Haiti and Deputy Head of MINUSTAH, succeeding Mr. da Costa, and Nigel Fisher (Canada) as Deputy Special Representative, Ad Interim, for Haiti, succeeding Kim Bolduc (Canada). On March 24, 2010, President Obama, in a supplemental budget request to Congress on Haiti, requested in the State Department’s Contributions to International Peacekeeping Activities (CIPA) account a total of $96.5 million for U.S. assessed contributions to MINUSTAH. This was to fund the increase in assessments resulting from the Security Council’s increase in force levels on January 19, 2010. The March 24 supplemental request also included, under Foreign Operations, in the International Narcotics Control and Law Enforcement Affairs (INCLE) account, $45,000,000 to support U.S. personnel to MINUSTAH: the “secondment of 50 police advisers, 20 Report of the Secretary-General on the United Nations Stabilization Mission in Haiti, U.N. document [dated April 22, 2010] S/2010/200. 21 S/2010/200, p. 14, para. 55. The legislative elections that had been scheduled for February 2010 had been postponed. 22 S/2010/200, p. 14, para. 57. 23 S/2010/200, p. 15, paras. 60-62. Ban’s increase would “represent 200 United Nations police and three self-sustaining formed police units.” According to the U.N. peacekeeping website, “A Formed Police Unit is a cohesive and trained team of 140 armed and well-equipped (for crowd control) police officers.” See http://www.un.org/en/peacekeeping/ sites/police/policework.shtml. 24 Mr. Mulet was Assistant Secretary-General, Office of Operations, in the Department of Peacekeeping Operations. He had preceded Mr. Annabi as SRSG for Haiti. On January 22, 2010, the United States and MINUSTAH had signed an agreement, clarifying their roles and responsibilities in coordinating international relief efforts with the government of Haiti. Congressional Research Service 8 Haiti Earthquake: Crisis and Response five corrections advisers, and one drug specialist.” These funds would increase the U.S. police and corrections officer contribution to MINUSTAH from 50 and 5 to 80 and 10, respectively.25 25 U.S. Department of State and U.S. Agency for International Development. FY2010 Haiti Supplemental Budget Justification. p. 44. This “peacekeeping” portion of the [total $143,489,000] request[ed] for the INCLE account would also pay for the construction of a temporary camp for the U.S. contingent and enough supplies to make them selfsustaining. U.S. assistance would also provide for the procurement of emergency supplies, replacement uniforms and equipment lost as a result of the earthquake, and purchase additional equipment needed to support an increased personnel contribution to MINUSTAH. Finally, the funds would support the training and equipping of a Formed Police Unit for the MINUSTAH mission in the areas of crowd/riot control and protection of U.N. facilities and personnel. Congressional Research Service 9 Figure 1. Haiti Earthquake Epicenter CRS-10 Haiti Earthquake: Crisis and Response Humanitarian Relief Operation Overall Status of the Relief Effort Experts break relief operations into several phases: search and rescue; treatment and survival; relocation and rehabilitation; early recovery; and long-term reconstruction. As with any significant natural disaster that has many moving parts, it can take days to get a relief effort underway. Delays in transportation and congestion, lack of transportation infrastructure, bureaucratic problems, and lack of access all can cause bottlenecks at key points in the system. While timing is critical to save lives, to enable a network of this size to function efficiently requires the coordination of assessments and appropriate responses with the government, local communities, and the international community. The sheer scale of the relief effort in Haiti has brought together tremendous capacity and willingness to help, but an ongoing effort and strategic planning is required at each phase to work out coordination and logistics issues. The massive humanitarian relief operation underway was hampered by a number of significant challenges, including a general lack of transportation, extremely limited communications systems, and damaged infrastructure. In many parts of Portau-Prince, roads were ruptured or blocked by collapsed buildings, debris, bodies, and people seeking open space. Working conditions remain hugely challenging for aid personnel. Humanitarian supplies are coming in to Haiti via Port-au-Prince and Santo Domingo, Dominican Republic. The airport in the Dominican Republic is also being used as a humanitarian staging area to help with the coordination effort and allow for relief teams and supplies to get to Haiti by land. Challenges consistent with a response to a disaster of this scope continue. In the first two weeks following the earthquake, priorities were focused on (1) search and rescue assistance, including teams with heavy-lift equipment and medical assistance and supplies; (2) addressing a critical need for food, clean water and sanitation, medical assistance, and emergency shelter; and (3) setting up key infrastructure and logistics operations. Three months after the disaster, the relief effort remains an immediate and critical priority amid plans under discussion for early recovery and reconstruction. There are concerns about security and potential for looting and violence, but according to the United Nations, the overall situation remains calm and stable, with some incidences of looting and criminality. However, 5,000 or so prison inmates escaped the National Penitentiary and other jails in Port-au-Prince during the earthquake (with some re-apprehended) and the whereabouts of the others is unknown, although it is suspected that a significant number may have retreated to Cite Soleil. Reports of rape cases in camps, roadblocks and fake tolls along roads, and other possible gang activity related to drugs and other crimes point to involvement by some of these criminals. U.N. and government officials are urging Haitians to turn in escaped criminals while also focusing on specific security interventions focused on their recapture. More in-depth assessments, necessary to obtain a better understanding of the situation on the ground, continue. The Post-Disaster Needs Assessment (PDNA) a joint effort among representatives from the Government of Haiti, World Bank, United Nations and other actors, was completed in time for the March 31 conference in New York. The information is critical for determining whether personnel are in place with adequate resources, planning recovery and reconstruction initiatives, developing strategies for the use of funding, and paving the way for Congressional Research Service 11 Haiti Earthquake: Crisis and Response donor pledges and long-term support. The PDNA and donors conference are discussed later in the report. United Nations Humanitarian Response At the outset of the disaster, the United Nations established Disaster Assessment and Coordination (UNDAC) and U.N. Office for the Coordination of Humanitarian Affairs (OCHA) teams.26 The UNDAC team coordinated the Onsite Operations and Coordination Center (OSOCC). Two sub-OSOCCs were established in Jacmel and Leogane to assist local authorities. The UNDAC team concluded its work in Haiti in February. In the weeks following the earthquake, OCHA helped to coordinate the search and rescue teams and continues to coordinate the assistance effort while focusing on other humanitarian priorities. In addition to working closely with the government of Haiti, OCHA is the lead agency working with actors on the ground, coordinating with the military, and enlisting donor support. The Humanitarian Country Team convened on February 1 and meets twice a week, with at least one of those meetings co-chaired by a representative from the government of Haiti. In consultation with MINUSTAH and international military forces, OCHA has developed a Joint Operations Tasking Centre (JOTC) which began operating on January 26 and focuses on civil-military coordination and logistics. The OCHA Civil-Military Coordination (CMCoord) team first convened on January 31 and brings together civil-military points of contact from humanitarian organizations, MINUSTAH, and international military forces. A Debris Management Planning Task Force was assembled on February 23. Humanitarian relief sectors are typically established during humanitarian crises to enable the United Nations to coordinate partners, prioritize resources, and facilitate planning. In Haiti, relief sectors have been organized into twelve clusters led by various agencies. 27 The clusters include • Agriculture (Food and Agriculture Organization, FAO); • Camp Coordination and Camp Management (International Organization for Migration, IOM); • Early Recovery (U.N. Development Program, UNDP); • Education (U.N. Children’s Fund, UNICEF); • Emergency Shelter and Non-Food Items (International Federation of Red Cross and Red Crescent Societies, IFRC); • Emergency Telecommunications (World Food Program, WFP); • Food (World Food Program, WFP); • Health (World Health Organization, WHO, and Pan American Health Organization, PAHO). • Logistics (WFP); 26 Kim Bolduc, the U.N. Resident/Humanitarian Coordinator, was deployed to Haiti in November 2009. The head of each cluster (indicated in parentheses) reports to the Resident/Humanitarian Coordinator and works in partnership with all relevant actors in that particular sector. The clusters meet at least once daily. 27 Congressional Research Service 12 Haiti Earthquake: Crisis and Response • Nutrition (UNICEF); • Protection (Office of the High Commissioner for Human Rights, OHCHR), with Child Protection (UNICEF); Gender Based Violence (U.N. Population Fund, UNFPA); • Water, Sanitation, and Hygiene (UNICEF). Initially, there were criticisms of the slow initial response by the humanitarian aid community to the crisis. In recent press conferences, the United Nations has stated the cluster system appears to be working well, but others suggest that some clusters appear to be doing better than others. Cluster arrangements have also been established in Leogane, Jacmel, and Gonaives. The cluster set up in the Dominican Republic was dissolved on April 13. Humanitarian Relief Sectors: Recent Developments28 • Emergency Shelter: After the earthquake struck, people began gathering spontaneously in open spaces in Port-au-Prince. It was estimated that there were 500 or more makeshift camp sites with a combined total of more than 700,000 people. Aid workers are delivering basic necessities to areas with population concentrations. Emergency shelter was in very short supply. Reports indicate that 97,000 houses were destroyed and 188,000 sustained damage. It is estimated that 1.9 million lost their homes. Approximately 597,000 people were initially reported to have relocated in departments outside the city, with the highest number concentrated in Artibonite Department. Reports indicated that a number of areas saw increases of 15%-20% in the population. Ninety percent of the new arrivals were staying with host families. Reportedly, prices of basic commodities increased. See the maps in Appendix B and Appendix C. In early April, the estimated number of displaced was adjusted, with an increase in the number of IDPs in Port-au-Prince to 1.69 million and IDPs displaced in areas outside the city appearing to decrease to 300,000. The adjustment may in part reflect more accurate numbers as a result of IDP registrations. It may also reflect a “pull factor” where those who left Port-au-Prince initially are now returning to the capitol as services improve and recovery gets underway. The United Nations reports that 86% of the known caseload of IDPs have been reached with emergency shelter materials. As the rainy season begins, there remain concerns about whether there is sufficient waterproof emergency shelter, the need to move people from unsafe settlements, and ongoing challenges to improve sanitation. In addition, houses and buildings weakened by the earthquake could collapse or slide in wet conditions, adding to the 65 million tons of rubble needing to be removed. Finding space to shelter the displaced remains an issue. 28 Information derived from a variety of sources, including USAID/OFDA, Haiti-Earthquake, Fact Sheet #13, FY2010 January 25, 2010; Pan American Health Organization, Emergency Operations Center Situation Report #12 Haiti Earthquake, January 25, 2010; OCHA, Haiti Earthquake, Situation Report #13, January 25, 2010. Congressional Research Service 13 Haiti Earthquake: Crisis and Response For those living in unsafe areas, the International Organization for Migration (IOM) has identified several options: (1) return to the permanent home if the structure is considered safe; (2) return to home area to a temporary shelter or proximity site; (3) seek accommodation with host communities—usually relatives or friends; (4) relocate to a new site. The first phase of humanitarian relocations for vulnerable families living in high-risk displacement sites was completed at the end of April, with more than 1,750 families moving to two temporary relocation sites at the edge of Port-au-Prince. Another plot in Corail Cesselesse (Port-au-Prince) has received over 3,000 people. IOM also reported that an estimated 49% of IDPs in the Port-au-Prince area were renters prior to the earthquake and 37% owned their own homes (14% did not identify their status.) Providing sustainable, long-term shelter to renters may be more problematic as renters do not own land for shelter installation and landowners may decide not to rebuild rental homes. In addition, owners of private schools have forced the eviction of those inhabiting their property as they seek to reopen their schools. Where to build on a more permanent basis will be a major decision—many of the poorest people were squatters on land subject to landslides and floods. The type of structures to be built will also have to be determined as there will be a need for inexpensive housing that is both earthquake- and hurricane-resistant. • Food: Food and water are reaching people every day, but the needs remain constant. It is estimated that 2 million people in Haiti need regular food aid. Some areas outside Port-au-Prince that were previously considered food secure are facing difficulties as prices increase. Supplementary food programs have been launched for children under 5 and pregnant women in the Port-au-Prince area. WFP has provided emergency food rations to 3.5 million people since the earthquake struck. The heads of three U.N. agencies – WFP, the Food and Agriculture Organization (FAO) and the International Fund for Agricultural Development (IFAD) formed a new Task Force for Food Security in Haiti. The task force aims to assist the Haitian government with the implementation of a coordinated and targeted immediate and long term food security strategy. It will also work with the relevant U.N. humanitarian clusters. The WFP is now transitioning to a focus on long-term food security and investments in human capital programs. As part of this initiative, it is also rolling out food- and cash-for-work initiatives. • Health: Acute respiratory illness is the most commonly reported illness, and in recent weeks, there have been some possible cases of malaria identified, but disease remains at baseline rates with none at epidemic levels. The health cluster is coordinating closely with other clusters on food assistance, shelter, sanitation, and education to assist the Haitian population. The need for sanitation and medical assistance remains. Limited follow-up, post-operative care is available and amputees are among those requiring longer-term assistance. The government of Haiti has shifted away from emergency services to focus on primary health care, health centers, and hospitals. The focus of the health cluster is also on basic primary health care services, such as maternal child health, rehabilitation services, and chronic diseases including diabetes, heart disease, HIV, and tuberculosis. Vaccination programs are being implemented and a Congressional Research Service 14 Haiti Earthquake: Crisis and Response targeted immunization program for populations in temporary settlements began on February 2. The provision of mental health care and psychosocial support to help survivors deal with trauma is also a recognized priority and organizations are mobilizing to address this issue. The identification and collection of mortal remains continues. • Logistics: In both Haiti and the Dominican Republic, WFP is heading the incountry Food aid, Logistics and Emergency Telecommunications clusters. UNHAS is running a twice daily flight from Santa Domingo to Port-au-Prince. The WFP is prepositioning food and non-food items as well as equipment throughout Haiti in preparation for the hurricane season. • Protection: The sub-cluster is focused on child protection activities in settlements, orphanages, and hospitals to determine the needs of children and to provide care to separated and unaccompanied children. Another main priority is protection of children during the relocation process. With so many people displaced and in need of protection, general security against crime is a critical concern. In addition, protection activities are focused on Haitian children displaced in the Dominican Republic. • Water, Sanitation and Hygiene (WASH): A water supply strategy is being planned to phase out water trucking and to develop more sustainable options. Limited water network capacity remains a challenge. Access to safe drinking water has improved. Latrine usage and sanitation remain problems at spontaneous settlements. Increasing sanitation support is a main priority. This is seen as an important public health issue to avoid spread of disease, particularly during the rainy season. Plans are underway to increase the provision of water and sanitation services in communities. • Education: Schools in areas unaffected by the earthquake reopened on February 1. Schools continue to open progressively, although the official reopening of schools was on April 5. Approximately 700 schools have now reopened in Portau-Prince. The United Nations reports that 4,000 students were killed in the earthquake. It is estimated that 1,300 schools were destroyed and between 2,000 to 4,600 schools were damaged by the earthquake. Temporary schools are being provided with shelters, safe water, sanitation facilities, and educational materials for the rainy/hurricane season. Fourteen percent of the population of Haiti is under 14 years of age. • Early Recovery: More than 95,700 people have been employed under UNDP’s cash-for-work program. Activities include clearance of drainage canals and the removal of rubble. Haiti’s Humanitarian Needs in Context A number of natural disasters have struck Haiti in the last decade (mostly in the form of hurricanes), prompting the need for international assistance through the United Nations and other actors. In addition to miscellaneous humanitarian funding provided for general emergency conditions, specific natural disasters include: Congressional Research Service 15 Haiti Earthquake: Crisis and Response • Floods—May 2002 • Tropical Storm Jeanne/Floods—September 2004 • Floods—November 2006 • Hurricane Dean—August 2007 • Hurricane Felix—September 2007 • Tropical Storm Noel—October 2007 • Hurricanes Gustav and Ike, and Tropical Storms Fay and Hanna—September 2008 • Haiti Earthquake—January 2010 Disaster risks in Haiti are significant. Experts recognize that finding ways to overcome the cycle of disaster and develop a disaster response capacity are critical not only to minimize humanitarian consequences but to sustain reconstruction efforts in the future. Other Humanitarian Actors The international community has provided significant humanitarian assistance in response to these disasters and their ongoing impact.29 The United Nations, along with other partners, including the United States, has had a strong presence in Haiti, and remains at the forefront of the current on-the-ground response for humanitarian assistance. Many international actors are providing humanitarian relief to Haiti, either through financial contributions to the government of Haiti or aid organizations or by directly providing relief supplies and emergency personnel. International recovery efforts are typically complex because they require coordination among numerous different actors and international entities. In the current crisis, apart from U.N. agencies, those responding to humanitarian crises include international organizations, NGOs, Private Voluntary Agencies (PVOs), and bilateral and multilateral donors. The International Federation of the Red Cross and Red Crescent Societies (IFRC) is working with the Haitian Red Cross Society (HRCS) and other national red cross societies, including the American Red Cross, to provide assistance to earthquake survivors. The IFRC is coordinating efforts with the International Committee of the Red Cross (ICRC), which is focused on medical assistance, tracing the missing and helping to restore family links. The ICRC is also helping with the identification and collection of mortal remains. In recent weeks, ICRC delegates have also visited 700 or so detainees in detention facilities in Port-au-Prince and Cap Haitien. Representatives of more than 20 national societies gathered in Montreal, Canada in mid February for a two-day meeting to develop a comprehensive approach with the red cross movement to Haiti’s needs. 29 Many international actors have provided humanitarian relief to Haiti, either through financial contributions to the government of Haiti or aid organizations or by directly providing relief supplies and emergency personnel. International recovery efforts are typically complex because they require coordination among numerous different actors, including other governments and international entities. Apart from U.N. agencies, those responding to humanitarian crises include international organizations, non-governmental organizations (NGOs), Private Voluntary Agencies (PVOs), and bilateral and multilateral donors. Congressional Research Service 16 Haiti Earthquake: Crisis and Response Various international NGOs that were already operating in Haiti before the earthquake mobilized to respond to the crisis. According to the United Nations, there are reportedly more than 900 NGOs focused on humanitarian relief operating in Haiti. Hundreds of local staff are assisting with the relief effort.30 U.S. Humanitarian Assistance U.S. Humanitarian Assistance to Haiti FY2009-FY2011, Prior to the Earthquake Prior to the January earthquake, and in response to other natural disasters, the United States was already providing humanitarian assistance to Haiti (see Table 1 below.) Table 1. U.S. Humanitarian Assistance to Haiti FY2009-FY2011 Appropriation by year, $ in thousands FY2009 Actual FY2010 Estimate FY2011 Request TOTAL HUMANITARIAN ASSISTANCE 69,798 45,500 35,500 Public Law 480 (Food Aid) 63,767 45,500 35,500 International Disaster Assistance (IDA) 6,031 — — Source: U.S. Dept. of State, Office of the Director of U.S. Foreign Assistance, March 4, 2010. Notes: Figures do not include Department of Defense assistance. U.S. Humanitarian Assistance to Haiti following the Earthquake Following the earthquake, on January 13, 2010, U.S. Ambassador to Haiti Kenneth H. Merten issued a disaster declaration, and the U.S. Agency for International Development (USAID), through the Office of Foreign Disaster Assistance (OFDA), authorized $50,000 for the initial implementation of an emergency response program. (See Appendix E for further information about the U.S. Government humanitarian response mechanism.) The embassy also facilitated the evacuation of U.S. citizens and issued a travel warning. The U.S. government immediately set up an interagency task force to coordinate and facilitate the humanitarian response to the earthquake in Haiti through the Washington, DC-based Response Management Team (RMT) headed by U.S. Agency for International Development (USAID), through the Office of Foreign Disaster Assistance (OFDA). In the first three months following the earthquake, the overall focus of the U.S. government’s response has included search and rescue, logistics and infrastructure support, provision of assistance, and conducting needs assessments. On January 14, 2010, President Obama announced $100 million in humanitarian assistance (in addition to pre-existing funding appropriated for Haiti) to meet the immediate needs on the 30 The airport in the Dominican Republic has also been used as a humanitarian staging area to help with the coordination effort and allow for relief teams and supplies to get to Haiti by land through an established U.N. humanitarian coordinator. Congressional Research Service 17 Haiti Earthquake: Crisis and Response ground. As of April 30, 2010, USAID reported that the United States has provided more than $1 billion in humanitarian funding for Haiti as follows: Table 2. FY2010 Humanitarian Funding Provided to Haiti for the Earthquake ($US) Agency/Account Amount USAID/OFDA 382,395,438 USAID/FFP 110,263,500 USAID/OTI 35,000,000 USAID/Haiti 63,391,212 USAID/Dominican Republic 3,000,000 DOD 460,000,000 Total 1,059,050,150 Source: USAID/OFDA, Haiti-Earthquake, Fact Sheet #52, FY2010, April 30, 2010. FY2010 Supplemental Humanitarian Relief Funding for Haiti The Administration is requesting a total of $1.5 billion in relief and disaster assistance funding for Haiti, which would reimburse U.S. government agencies for services provided and for funds already obligated for ongoing relief activities. The humanitarian relief funding request also covers other relief-related assistance. The $1.5 billion request includes $350.7 million for USAID International Disaster Assistance (IDA); $150 million for Agriculture Department emergency food assistance; $96.5 million for State Department: Contributions to International Peacekeeping Activities; $655 million for Department of Defense and $45 million for U.S. Coast Guard relief activities; $220 million for Department of Health and Human Services to provide grants to States to cover services to Haitian evacuees; and $15 million for Department of Homeland Security immigration fees. The activities of two of the key agencies—USAID and DOD—are described briefly below.31 USAID Within 24 hours of the earthquake, the United States began deploying search and rescue teams along with support staff, and including search and rescue canines and rescue equipment, from Fairfax, VA, Los Angeles, and Miami. USAID/OFDA also deployed a 32-member Disaster Assistance Response Team (DART). The RMT (mentioned above) supported the USAID/DART, which focused on assessing humanitarian needs, positioning emergency relief supplies, and coordinating assistance with the U.S. Embassy in Haiti, the government of Haiti, and the international community. USAID personnel have been active in the following U.N. clusters: Water, Sanitation, and Hygiene; Emergency Food Assistance and Food Security Planning; Logistics; Health; and Shelter, and Protection. USAID/OFDA issues regular situation reports 31 Other agencies responding to the crisis include the Federal Emergency Management Agency (FEMA), Health and Human Services (HHS), and Department of Homeland Security (DHS). Congressional Research Service 18 Haiti Earthquake: Crisis and Response assessing the progress of relief operations.32 See map in Appendix D. On April 25, the USAID/DART transitioned to the USAID/OFDA Program Office. Department of Defense: Operation Unified Response33 In response to the crisis in Haiti, the Department of Defense (DOD) deployed a broad range of military assets in Operation Unified Response to support U.S. and international assistance efforts. On February 1, 2010, Admiral Mullen, chairman of the Joint Chiefs of Staff, stated that “We will remain in Haiti just as long as we are needed. At the request of the Haitian government and in partnership with the U.N. and international community, we will continue to do all that is required to alleviate suffering there.” (See Appendix F for further information on the military units participating in Operation Unified Response.) At the peak of operations, DOD had deployed over 22,000 personnel, 15 Navy and Coast Guard vessels, and 58 aircraft to Haiti, including 7,000 ground troops. Currently, 1,000 soldiers remain ashore in Haiti and will remain through May, when they will be replaced with 500 Louisiana National Guard troops dedicated to reconstruction efforts. The USS Iwo Jima, an amphibious assault ship, will remain in the region through the upcoming hurricane season. U.S. Southern Command (SOUTHCOM), located in Miami, oversaw the Department’s response efforts, and U.S. Northern Command detailed over 100 disaster recovery specialists to Operation Unified Response. SOUTHCOM is well-experienced in this type of operation, having supported 14 relief missions in the Latin American and Caribbean area since 2005. SOUTHCOM’s initial assessment team, consisting of military engineers, operational planners, and command and control communication specialists, deployed to Haiti within 24 hours of the earthquake. U.S. Air Force Special Operations Command personnel dispatched to the Port au Prince International Airport restored air traffic control capability and rapidly enabled round-the-clock airfield operations. The airport can now handle up to 120 flights a day, up from the 20 daily flights it handled prior to the earthquake. According to SOUTHCOM, over 14,000 U.S. citizens were evacuated safely. U.S. military forces have delivered over 2.6 million bottled waters, 2.3 million food rations, 15 million lbs of bulk food, more than 125,000 lbs of medical supplies, and more than 844,000 lbs of bulk fuel. Additional tasks undertaken by DOD personnel included casualty treatment both ashore and afloat, aerial reconnaissance to assist rescue/supply efforts, the distribution of 73,000 handcrank commercial radios, and the provision of radio broadcast capacity for emergency services information. The U.S. Air Force’s Air Mobility Command (AMC) provided a range of transport aircraft, including C-17 Globemaster IIIs and C-130 Hercules. Air National Guard units from Ohio and Puerto Rico also provided transport aircraft. The Navy Expeditionary Combat Command deployed units that can provide explosive ordnance disposal, maritime and riverine security, diving/salvage experts, and naval construction personnel. U.S. Navy surveillance and Air Force unmanned aircraft performed aerial surveys of the earthquake damage to assist remediation efforts. Of particular importance to improving rescue/recovery supply operations, a U.S. Coast Guard Maritime Transportation Recovery Unit coordinated efforts to restore the Port au Prince 32 See USAID website: http://www.usaid.gov/our_work/humanitarian_assistance/disaster_assistance/countries/haiti/ template/index.html. 33 Prepared by Stephen Bowman, CRS Specialist in National Security, Foreign Affairs, Defense, and Trade Division. Congressional Research Service 19 Haiti Earthquake: Crisis and Response harbor facilities, and the U.S. Navy deployed a variety of specialized ships (salvage, heavy-crane, and oceanographic survey) to assist in these efforts. To date, eight Haitian ports are fully operational, and Port-au-Prince facilities are operating at partial capacity. The 22nd Marine Expeditionary Unit (2,000 personnel) and a brigade combat team from the 82nd Airborne Division (3,400 personnel) have conducted security/humanitarian operations. Though there have been incidents of violence and looting, military commanders noted these have been concentrated primarily in areas known for violence prior to the earthquake, and the commanders are optimistic that violence will not spread to the general population, provided that the distribution of basic humanitarian supplies continues to improve. Fewer than 1% of the U.S. military personnel in Haiti have been required to conduct security operations. A U.S. Marine Fleet Anti-terrorism Security Team has provided protection for U.S. Embassy facilities. Civil Affairs units from the Army, Navy, and Marine Corps deployed to stricken areas to facilitate interaction between the population, the Haitian government, and organizations undertaking relief and recovery operations. The U.S. Coast Guard has undertaken the air-medical evacuation of injured U.S. civilian personnel to the Guantanamo Naval Station, supplied two C-130 transport aircraft, and deployed six cutters. The Department of Defense has requested a supplemental appropriation of $655 million for its humanitarian relief efforts in Haiti. This request comprises $133.3 million each for both the Army and Navy Operations and Maintenance (O&M) Accounts, $133.4 million for the Air Force Operations and Maintenance, and $255 million for the Overseas Humanitarian, Disaster, and Civic Aid Account (OHDACA). The requested funds for the Services will back-fill the $400 million in O&M funds that were initially reprogrammed to the OHDACA account, the account used by DOD to conduct humanitarian relief efforts. The $255 million requested for OHDACA fulfills the remainder of the $655 million requirement for Operation Unified Response. This supplemental request covers expenses already incurred, in addition to permitting continued operations through June 15, 2010. Specifically, the funding will provide for soldier subsistence; personal, operational, transportation support; humanitarian relief supplies; and a number of humanitarian relief projects. Non-Governmental Organizations (NGOs) There is no central database that tracks activities and funding of national or international NGOs. It is therefore not possible to provide comprehensive and accurate information on their programs and funding, either for this crisis or for activities over the past decade. The United States Institute of Peace estimates that prior to the earthquake, the number of NGOs operating in Haiti ranged from 3,000 to 10,000.34 U.S.-based NGOs are playing an active role in the relief and recovery effort in Haiti, several of them with U.S. government funding. A list of U.S. NGOs working in Haiti can be obtained from a variety of sources.35 A NGO Coordination Unit has been established to ensure better coordination among NGOs, the United Nations, and the military. 34 United States Institute of Peace, Haiti: A Republic of NGOs? Peacebrief 23, April 26, 2010. See, for example, Interaction, which is an alliance of U.S.-based international humanitarian and development NGOs at http://www.interaction.org. 35 Congressional Research Service 20 Haiti Earthquake: Crisis and Response Overall U.S. FY2010 Assistance In the FY2010 Consolidated Appropriations Act (P.L. 111-117) Congress provided “not less than $295,530,000” for assistance for Haiti, about $2.7 million more than the Administration had requested. Congress also included Haiti in the Caribbean Basin Security Initiative, to provide equipment and training to combat drug trafficking and related violence and organized crime, and for judicial reform, institution building, education, anti-corruption, rule of law activities, and maritime security. (See “Legislation in the 111th Congress” section below.) The estimated FY2010 assistance for Haiti is $363 million, including $23 million and $121 million for Global Health and Child Survival under USAID and State Department, respectively; $161 million in Economic Support Funds; $35.5 million in P.L. 480 food aid; $21 million for International Narcotics Control and Law Enforcement; $0.22 million for International Military Education and Training, and $1.6 million in Foreign Military Financing. The Administration had requested $359 million in FY2011 assistance for Haiti, including $35 million and $121 million for Global Health and Child Survival under USAID and State Department, respectively; $146 million in Economic Support Funds; $35.5 million in P.L. 480 food aid; $19 million for International Narcotics Control and Law Enforcement; $0.22 million for International Military Education and Training, and $1.6 million in Foreign Military Financing. FY2010 Supplemental Funding Request for Haiti The Obama Administration is requesting $2.8 billion in FY2010 supplemental funding to cover costs associated with relief and reconstruction support for Haiti following the earthquake. The Administration has requested that all of the proposed funds be considered as emergency requirements, in response to urgent and essential needs in Haiti. Some of the funds are available until September 30, 2012, others until expended. The supplemental request covers both reimbursement of obligations already incurred and new activities by various U.S. agencies. CRS estimates that 55% of the total Haiti supplemental request is for reimbursement of relief activities related to the earthquake disaster, 40% for new recovery and reconstruction activities, and 6% for diplomatic operations administration.36 International Humanitarian Funding A great many international actors are also providing relief to Haiti, either through financial contributions to the government of Haiti or aid organizations or by directly providing relief supplies and emergency personnel. U.N. Consolidated Appeals Process The earthquake disaster in Haiti has received worldwide attention and focus. Under the U.N. Consolidated Appeals Process, on January 15, 2010, the U.N. Humanitarian Country Team in 36 Percentages total 101% due to rounding of request amounts. Congressional Research Service 21 Haiti Earthquake: Crisis and Response Haiti issued a Flash Appeal for emergency financial assistance in the amount of $575 million to support emergency food aid, health, water, sanitation, emergency education, and other key needs and early recovery efforts (typically the initial six months after a disaster). As of February 15, commitments of $619 million had been received (107 % of the Flash Appeal) and a further $29 million in uncommitted pledges. On February 19, 2010, the United Nations announced that it had revised its humanitarian aid appeal for Haiti to $1.44B – a record high. The Revised Humanitarian Appeal includes the original six-month Flash Appeal amount and it extends the humanitarian operation through 2010. As of April 29, 2010, commitments of $831 million (55.4% of the Revised Appeal) had been received and a further $27 million in uncommitted pledges. Other Pledges and Contributions Additional pledges and contributions have also been made outside the Flash Appeal. Many countries, including the U.S. government, are providing assistance in the form of direct contributions of items such as food and tents, or through the operation of relief flights and logistics support. In addition to bilateral assistance, funding has also been provided to NGOs operating outside of the U.N. appeal. The Emergency Relief Response Fund for Haiti has more than $76 million in pledges, of which $63 million has been received. These funds have been allocated by cluster to U.N. and NGO organizations. The U.N.’s Central Emergency Response Fund (CERF) initially made available $10 million which later increased to $37.9 million.37 Donor Contributions and Pledges So far, through governments and the private sector, the international community has pledged millions of dollars in aid, materials, and technical support. Appendix G highlights donor contributions and in-kind pledges. At least 116 countries from around the world have contributed to the relief effort. Obtaining an exact up-to-date record of all international contributions is not possible—in part because some assistance is not reported to governments or coordinating agencies—and in part because of the delay in their recording. As the recovery effort gets underway, the Haitian government is considering a geographical distribution of tasks or tasks that are theme based as a way of engaging donor interest. For example, one country might “adopt” a province or city or target a specific need in the Haitian government. 37 As part of the United Nations’ reform process, in March 2006, the CERF was launched based on several earlier resolutions approved by the U.N. General Assembly to strengthen the United Nations’ capacity to respond to natural disasters and humanitarian emergencies. It is managed by the Emergency Relief Coordinator and head of UNOCHA. As an international, multilateral funding mechanism, the CERF aims to focus on early intervention, timely response, and increased capacity and support to underfunded crises. The funds come from voluntary contributions by member states and from the private sector. The CERF is seen by proponents as a way to enable the United Nations to respond more efficiently, effectively, and consistently to humanitarian crises worldwide. Others also believe that U.S. support for this idea is critical to sustaining momentum for donor contributions and continued support for the disaster relief fund. Congressional Research Service 22 Haiti Earthquake: Crisis and Response Private Contributions Private sector assistance has already been substantial and is expected to continue to grow. Some reports indicate that as of April 2010, private companies and individuals had contributed more than $1 billion to support relief efforts in Haiti.38 Initiatives in the United States include the campaign by the American Red Cross to raise funds through text messages ($31 million), the Hollywood star-studded telethon that featured performances by a broad range of musicians and was broadcast on major U.S. television networks ($66 million), and numerous local fund raising activities. On January 16, 2010, President Obama announced that former Presidents George W. Bush and Bill Clinton, who is also serving as the U.N. Special Envoy to Haiti, would lead a fundraising effort and work with the U.S. private sector in support of Haiti. The initiative is called the Clinton Bush Haiti Fund.39 Cash donations are being encouraged. To date, the fund has received more than $200,000 in contributions. On March 22, Presidents Bush and Clinton visited Haiti to assess relief and recovery efforts. Recovery Planning among Donors and Haiti40 President Préval has asked the international community to focus not just on immediate humanitarian relief efforts, but also on long-term development needs. Early Recovery Planning Discussions among the government of Haiti and the international donor community regarding a long-term strategy for Haiti began almost immediately. To that end, at a preliminary meeting among some international donors held in the Dominican Republic the week following the earthquake, Dominican President Leonel Fernandez proposed a $10 billion five-year assistance program for Haiti. Representatives from Haiti, the “Friends of Haiti” nations, other countries, and U.N. officials held a high-level Ministerial Conference in Montreal, Canada, on January 25, 2010, to discuss reconstruction plans for Haiti. Haitian Prime Minister Jean-Max Bellerive thanked the donor community for its help so far, but said that an international commitment of 5 to 10 years was needed to support Haitian development. Conferees agreed to study recent examples of multilateral recovery efforts in order to develop an optimal aid-delivery mechanism that ensures effectiveness and accountability, and creates the conditions for sustainable development. The World Economic Forum launched a global initiative to integrate business into Haiti’s reconstruction at its meeting January 27-31. 38 See, for example, the Chronicle of Philanthropy at http://philanthropy.com/news/updates/index.php?id=10679 and http://philanthropy.com/news/updates/10632/donations-to-aid-haiti-set-new-records. 39 For more information, see http://clintonbushhaitifund.org. 40 Prepared by (name redacted), Specialist in Latin American Affairs, Foreign Affairs, Defense, and Trade Division. Congressional Research Service 23 Haiti Earthquake: Crisis and Response March 31, 2010 Donors Conference41 The global donor conference in New York on March 31 secured commitments for substantial funds for Haiti’s recovery. Donors pledged nearly $10 billion toward long-term reconstruction efforts, $5.3 billion of that for the first 18 months. These pledges are in addition to commitments made to the U.N. flash appeal for Haiti. The Obama Administration, other international donors, the Haitian government, and others actors have all stated the need for improved accountability of all donor assistance to Haiti, to improve aid effectiveness and reduce the potential for corruption. Several entities have been established to improve development planning, coordination, and accountability. Although some Haitians think foreign donors are exerting too much control through these mechanisms, Haitian President Rene Préval and Prime Minister Jean-Max Bellerive have acknowledged that Haitian capacities were already limited, and were considerably diminished by the earthquake, and proposed such entities in their action plan. The National Assembly approved the Interim Haiti Recovery Commission. Multi Donor Trust Fund. The World Bank will receive international funding and act as the fiscal agent for the funds. The Haitian government will lead a Steering Committee that will decide which agencies will receive the funds. The Bank will ensure that the Haitian government is meeting legal requirements before funds are transferred to it for budget support. Haiti Reconstruction Platform. To ensure further transparency, the U.S. Agency for International Development has helped Haiti establish an internet-based system to track donor pledges, and monitor the implementation and spending of assistance.42 Interim Haiti Recovery Commission. Before the conference, the Préval Administration announced the formation of this Commission to guide long term development. It is to be cochaired by former President Clinton and Haitian Prime Minister Jean-Max Bellerive. Other members are to include two Haitian legislators, local authorities, union and business representatives, a Caribbean Community (Caricom) delegate, and one representative of each of Haiti’s largest donors. Those donors include the United States, Canada, Brazil, France, Venezuela and the European Union, as well as the Inter-American Development Bank, the World Bank, and the United Nations. It is designed to give Haitian officials the opportunity to exert leadership regarding their priorities, while working with international experts to hone their ability to design and execute development programs and process foreign assistance. According to Secretary of State Clinton’s chief of staff, Cheryl Mills, the goal is to turn the process over to Haitian authorities in 18 months, at which time it would become the Haitian Development Authority. The Role of the United Nations and Other Organizations The United Nations, in association with other U.N. system agencies and programs, conducted the initial needs assessments necessary for planning Haiti’s long-term and comprehensive recovery. Among the major actors involved were the World Bank, the U.N. Development Program, the multitude of U.N. specialized agencies (such as the World Health Organization, the U.N. Educational, Scientific, and Cultural Organization, the Food and Agriculture Organization), as 41 The website for the conference is at http://www.haiticonference.org/. Much of the information for this section is drawn from documents at that site. 42 The Haiti Reconstruction Platform is available at http://www.refondation.ht/index.jsp?sid=1&id=1&pid=1. Congressional Research Service 24 Haiti Earthquake: Crisis and Response well as regional organizations, including the European Union (EU), the Organization for American States (OAS), the Inter-American Development Bank, and the Caribbean Community (Caricom). Many of these organizations worked together previously in Haiti in response to the 2008 hurricanes and are responding to the international humanitarian needs in the aftermath of the earthquake. The Human Rights Council held a special session on Haiti on January 27-28, 2010, and in its resolution, it stressed the importance of protecting human rights during the recovery effort. The Office of the High Commissioner for Human Rights (OHCHR) has sent a human rights monitoring team to Haiti. The OHCHR along with the United Nations High Commissioner for Refugees (UNHCR) continue to press all countries to suspend involuntary returns to Haiti due to the humanitarian crisis. Response of International Financial Institutions43 Multilateral Lending The multilateral development banks (MDBs) have been active in Haiti for several years, providing debt relief, loans, and grants to both the Haitian government and the private sector. Following the earthquake, the World Bank, the Inter-American Development Bank (IDB), and the International Monetary Fund (IMF) announced new financial support for the country. World Bank After the earthquake, the World Bank announced $100 million in emergency grant funding to support recovery and reconstruction, in addition to its existing $308 million portfolio of grants projects in Haiti. 44 The existing projects are in areas including disaster risk management, infrastructure, community-driven development, education, and economic governance. At the March Donor’s conference, the World Bank announced an additional $250 million in new funding for Haiti. This includes $151 million in grants, a $39 million write-off from cancelling Haiti’s remaining debt to the Bank and $60 million in investments from the Bank’s private sector arm, the International Finance Corporation (IFC).45 Inter-American Development Bank On January 12, 2010, Inter-American Development Bank (IDB) President Luis Alberto Moreno announced a $200,000 emergency grant for immediate relief aid. The IDB is Haiti’s largest multilateral donor, with a portfolio of programs worth over $700 million as of the end of 2009.46 These programs include both grants and concessional loans. Of this amount, $330 million is undisbursed, of which $90 million could be quickly redirected to high-priority civil works and reconstruction projects.47 IDB management also announced that it anticipates the approval of up 43 Prepared by Martin Weiss, Specialist in International Trade and Finance, updated by (name redacted), Analyst in International Trade and Finance, Foreign Affairs, Defense, and Trade Division. 44 “World Bank to Provide an Additional $100 Million to Haiti, Following Earthquake,” World Bank, January 13, 2010. 45 “World Bank Pledges Half Billion US Dollars for Haiti Over 14 Months,” World Bank, March 31, 2010. 46 “December 2009—IDB Portfolio in Haiti, Inter-American Development Bank, December 17, 2009. 47 “Haiti earthquake: IDB redirects resources for emergency assistance and reconstruction,” Inter-American (continued...) Congressional Research Service 25 Haiti Earthquake: Crisis and Response to $128 million in already-planned grants, potentially providing more resources for reconstruction. In March 2010, IDB donor governments committed to providing necessary resources so that the IDB can provide at least $2 billion in grants to Haiti over the next ten years.48 International Monetary Fund Haiti receives concessional loans from the International Monetary Fund (IMF) as well as from the multilateral development banks.49 In response to the earthquake, the IMF approved $102 million in new assistance. Including the new lending, total Haiti debt to the IMF is now $271 million.50 Debt Relief Prior to the Earthquake Haiti completed the multilateral Enhanced Heavily Indebted Poor Countries (HIPC) Initiative in June 2009, making it eligible to receive debt relief from the multilateral and some bilateral creditors. World Bank Under the terms of Haiti’s participation in the Enhanced HIPC program, the World Bank provided Haiti debt relief for debts incurred through December 2003. According to the World Bank, debt relief under the Enhanced HIPC Initiative amounts to $140.3 million. Inter-American Development Bank The IDB, in September 2009, provided $511 million in debt relief. Debts eligible for cancellation were those incurred through 2004 (compared to 2003 in the case of IDA). According to the IDB, Haiti currently owes $429 million (principal-only) to the IDB. This includes $305 million from loans made in 2005 and 2006, after the debt cancellation cut-off date of December 31, 2004, and $124 million from undisbursed balances of loans made before the cut-off date. Beginning in 2009, Haiti’s payments on its debt to the IDB have been made by a U.S.-supported trust fund that currently amounts to $20 million. Bilateral Creditors Haiti has also received debt relief from its bilateral creditors. Haiti’s completion of the HIPC program triggered debt relief of $62.7 million by the Paris Club group of official creditors. Haiti’s Paris Club creditors agreed to go beyond the requirements of the HIPC program, however, and provide $152 million in additional debt cancellation, thus completely cancelling Haiti’s external (...continued) Development Bank, January 13, 2010. 48 IDB approves historic expansion of capital, financial package for Haiti,” Inter-American Development Bank, March 22, 2010. 49 Financing under the IMF’s concessional lending facility, the Extended Credit Facility, carries a zero interest rate, with a grace period of 5½ years, and a final maturity of 10 years. The Fund reviews the level of interest rates for all concessional facilities under the PRGT every two years. 50 Statement by IMF Managing Director Dominique Strauss-Kahn during the International Donors Conference Towards a New Future for Haiti, International Monetary Fund, March 31, 2010. Congressional Research Service 26 Haiti Earthquake: Crisis and Response Paris Club debt of $214 million. That said, Paris Club debt relief is not automatic. Creditor nations collectively sign bilateral agreements with the debtor nation, giving effect to the multilateral debt relief agreement. By mid-January, for example, France had only cancelled €4 million ($5.75 million) of €58 million ($83.36 million) owed to them by Haiti.51 On September 18, 2009, the United States cancelled $12.6 million (100%) of Haiti’s outstanding debt to the United States. The United States has not extended new loans to Haiti since September 2009. Haiti does not currently have any outstanding debt obligations to the United States. Debt Relief Since the Earthquake Agreement has been reached by several donor nations to finance the cost of additional Haiti debt relief for three institutions: the IDB, the World Bank, and the International Fund for Agriculture and Development (IFAD). Inter-American Development Bank Haiti’s remaining debt from the IDB totals $447 million. An estimated $186 million of additional loans have been approved but have not yet been disbursed. Once these are provided, they will add to the debt stock. There is also a $28 million balance that represents Haiti’s local currency conversion obligation to the IDB’s low-income lending arm, the Fund for Special Operations (FSO). At the IDB’s March 2010 annual meetings, member states agreed to fund 100% cancellation of Haiti’s remaining debts owed to the IDB, although all details have not been finalized. 52 World Bank Haiti’s remaining debt to the International Development Association, the World Bank’s lowincome lending facility, is $39 million. On March 31, 2010, the World Bank announced that 14 donor countries, Belgium, Canada, Germany, Finland, France, Ireland, Italy, Japan, The Netherlands, Norway, Spain, Sweden, Switzerland and the United States, have pledged to provide a total of $39 million to cancel Haiti’s remaining IDA debt.53 International Fund for Agriculture and Development Haiti’s remaining debts to IFAD are around $79 million. In April 2010, member nations agreed to cancel these debts.54 Under the agreement, IFAD - an international financial institution and a specialized United Nations agency dedicated to eradicating poverty and hunger in rural areas of developing countries - will contribute up to 30 per cent of the debt relief requirement, with member states needing to contribute the remaining 70%. 51 “France Asks Paris Club to Speed Up Haiti Debt Relief,” Reuters, January 15, 2010. “UPDATE 2-IADB governors commit to Haiti aid, fresh capital,” Reuters, March 22, 2010. 53 World Bank Pledges Half Billion US Dollars for Haiti Over 14 Months, World Bank, March 31, 2010. 54 UN agency forgives debt owed by disaster-hit Haiti, UN News, April 23, 2010. 52 Congressional Research Service 27 Haiti Earthquake: Crisis and Response Since the earthquake, other countries have stepped forward to provide debt relief to Haiti. At the end of January 2010, Venezuela announced it would forgive Haiti’s debt, totaling $295 million.55 In mid-February 2010, French President Nicolas Sarkozy visited Haiti and announced a new French aid package for Haiti that reportedly included the cancelling of all the debt owed by Haiti to France, totally €56 million (approximately $77 million). 56 Taiwan, another major bilateral creditor to Haiti with $90 million of outstanding debt to Haiti, has discussed canceling Haiti’s debt but nothing has materialized to date.57 International Monetary Fund To date, there has been no international agreement on forgiveness of Haiti’s debts to the IMF of $271 million. The interest rate on Haiti’s IMF loans is zero until 2012, however, with no payments due until 2013. The IMF and Haiti’s Financial Sector On February 24, 2010, the IMF issued a press release on its role in helping revive Haiti’s financial sector.58 Officials from the IMF and Haiti’s Central Bank discussed a proposal prepared by Haiti’s authorities to maintain financial stability and restart private sector credit. The IMF’s press release states that “this proposal will be critical to allowing the private sector to fully play its role in rebuilding the economy and providing jobs, in the context of the broader reconstruction and economic recovery.”59 The IMF also announced that it will help Haiti’s authorities design a partial credit guarantee fund. Debt Relief in the FY2010 Supplemental Funding Request To help Haiti in its recovery from the earthquake, the Administration is proposing U.S. contributions of $252 million to help cancel Haiti’s debts of $781 million to three international organizations: the Inter-American Development Bank, World Bank, and International Fund for Agriculture and Development. Through FY2010 supplemental funding, the Administration requests reallocating up to $40 million from the Treasury Department’s Debt Restructuring Account appropriated for the multilateral Heavily Indebted Poor Countries (HIPC) Trust Fund from this or subsequent fiscal years to Haiti. The Administration also seeks new contributions of $212 million for multilateral debt relief. Congressional authorization is required for the $40 million reallocation, and both authorization and appropriations are required for the additional $212 million. 55 Heather Stewart , “Haiti Heads for Debt Crisis as Emergency Loans Pile Up after Earthquake,” The Observer, January 31, 2010. 56 Pascal Fletcher, “Sarkozy Visits Haiti, Unveils Major Aid Package,” Reuters, February 17, 2010. It is unclear why estimates of Haiti debt owed to France differ across news articles (€58 million vs. €56 million), but it is reported that the debt relief provided by France to Haiti in mid-February allowed for cancellation of all of the debt owed by Haiti to France. 57 “Taiwan Contemplating Haiti Debt Relief Decision,” Taiwan News, January 21, 2010. 58 IMF, “Statement by the IMF on Haiti,” press release, February 24, 2010, http://www.imf.org/external/np/sec/pr/ 2010/pr1059.htm. 59 Ibid. Congressional Research Service 28 Haiti Earthquake: Crisis and Response Regional Response Latin American countries have responded to Haiti’s crisis with immediate provision of emergency supplies and personnel and pledges of financial and other assistance for its long-term recovery. Members of the Organization of American States (OAS) pledged humanitarian, financial and other support to Haiti. The OAS Group of Friends of Haiti met on January 14 to coordinate search and rescue efforts, prompt donations, and discuss ways to promote recovery. The 15-member Caribbean Community (CARICOM), of which Haiti is also a member, was working in Haiti prior to the earthquake. Afterwards, it mobilized its disaster emergency response system to assist Haiti, and several members have sent emergency supplies or promised financial assistance. The Caribbean Disaster Emergency Management Agency assembled a response team to assess conditions in Haiti as well.60 Many countries in the region already have peacekeeping troops in Haiti serving with MINUSTAH. Brazil leads the U.N. peacekeeping mission, and had 1,284 uniformed personnel already serving there as of December 2009. Many countries in the region have made bilateral cash or in-kind contributions as well. (See “Regional Donors to Haiti Relief Effort,” in Appendix F.)The Dominican Republic, which shares the island of Hispaniola with Haiti but did not suffer heavy damage from the earthquake, responded swiftly and generously. The two countries have a long history of hostility toward one another, but Presidents Préval and Fernandez have worked in recent years toward having a more cooperative relationship, and this has been reflected in the Dominican response. Haiti’s neighbor was the first country to send relief supplies and personnel, and has facilitated aid delivery through use of its airports, roads, and port. It has stopped repatriation of undocumented Haitians, and opened its border to injured Haitians, thousands of whom have been treated in both public and private hospitals. Fernandez organized a preparatory meeting for donors to discuss future aid to Haiti the week after the earthquake, and the Dominican Republic hosted a technical meeting prior to the March 31 donor conference. Political and Economic Situation in Haiti61 Conditions in Haiti Before the Earthquake Long before the earthquake struck, Haiti was a country socially and ecologically at risk. It has some of the lowest socioeconomic indicators in the world62. Haiti was already in an acute environmental crisis. Only 2% of its forest cover remains intact.63 Following the hurricanes of 2008, the President of the Inter-American Development Bank (IDB), Luis Moreno, called Haiti 60 Caribbean Media Corporation, “Caribbean heads of state to visit Haiti to assess quake damage,” BBC Monitoring Americas, January 14, 2010. 61 Prepared by (name redacted), Specialist in Latin American Affairs, Foreign Affairs, Defense, and Trade Division. 62 World Bank, Country Report: Haiti, 2010, http://go.worldbank.org/GBXI5JKM50. 63 Ibid. Congressional Research Service 29 Haiti Earthquake: Crisis and Response the most fragile of IDB’s member countries, saying that no other nation in Latin America and the Caribbean is as vulnerable to economic shocks and natural disasters as is Haiti. Haiti had been making progress, however. The U.N. Secretary-General commissioned a report, published in January 2009, that recommended a strategy to move Haiti beyond recovery to economic security. Indeed, the U.N. Security Council conducted a fact-finding visit to Haiti in March 2009, and concluded that there was “a window of opportunity to enable the consolidation of stability and the undertaking of a process of sustainable development.” 64 Political Conditions President Préval is in his second (non-consecutive) five-year term as President of Haiti. During the first three years of this term, Préval established relative internal political stability. He outlined two main missions for his government: (1) to build institutions, and (2) to establish favorable conditions for private investment in order to create jobs. In November 2007, his Administration published its National Strategy for Growth and Poverty Reduction, a key step in meeting IMF requirements for debt relief, which it met in June 2009. With the support of MINUSTAH, which arrived in Haiti in 2004, security conditions improved, as did the capacity of the country’s police force. Both the former and current U.S. Administrations praised Préval for his efforts to improve economic conditions and establish the rule of law in Haiti. Préval pledged to cooperate with U.S. counternarcotics efforts. Both President Barack Obama and Secretary of State Hillary Clinton met with President Préval early in 2009, and since the earthquake have provided humanitarian assistance and pledged long-term support for development in Haiti. The Haitian government is functioning under extremely difficult conditions, with 28 of 29 government Ministry buildings destroyed, and 17% of the country’s civil service killed. 65 U.S. and U.N. officials both say they are coordinating relief and recovery efforts with the Préval administration. To provide the Haitian government some operating space, the U.S. Department of State agreed on January 16 to lease the old U.S. Embassy building in downtown Port-au-Prince to the Haitian government for $1 a year. That building had been put up for sale in June 2008 after the new U.S. Embassy opened near the Port-au-Prince airport. On February 16, 2010, Canadian Prime Minister Stephen Harper while in Haiti announced that Canada would provide $12 million to build temporary facilities to house several Haitian government ministries. Though greatly improved, Haiti’s political stability remains fragile. Préval’s inauguration in 1996 was the first transition between two democratically elected presidents in Haitian history. The government has its third prime minister since April 2008. Parliament dismissed Prime Minister Michele Pierre-Louis in October 2009, barely a year after her appointment. Nonetheless, the transition was smooth as President Préval swiftly appointed, and the Parliament confirmed, JeanMax Bellerive to take her place. As Minister of Planning and External Cooperation from 2006 to 2009, Bellerive helped to prepare Haiti’s National Strategy for Growth and Poverty Reduction.66 After the earthquake, former President Jean-Bertrand Aristide announced he would like to return to Haiti, although he has since given no explicit plans to do so. Aristide has lived in exile in South 64 “Haiti: UN Council Mission reports strides in security, worrisome poverty,” States News Service, March 19, 2009. U.S. Dept. of State & U.S. AID, FY201ff0 Haiti Supplemental Budget Justification, p.4. 66 “New Haitian Prime Minister-designate Profiled,” BBC Monitoring Americas, November 5, 2009. 65 Congressional Research Service 30 Haiti Earthquake: Crisis and Response Africa since his government collapsed in 2004. Once—and possibly still—extremely popular among some Haitians, he is nonetheless a divisive figure. Aristide would face charges of corruption and would likely contribute to political instability if he were to return. The National Assembly and the Question of 2010 Elections Haiti’s parliament, the National Assembly, also faces enormous challenges in trying to reestablish itself: some of its members were killed in the earthquake; the parliament buildings were destroyed, as was the electoral council’s building. The U.S. House of Representatives’ Democracy Partnership and others are working with the Parliament to help it function again. The National Assembly has been meeting since shortly after the earthquake in makeshift offices. The Senate elected two commissions on January 28 to monitor international aid and manage agreements with aid organizations. Political tensions were mounting ahead of parliamentary elections scheduled for February 28 and March 3, 2010. In late 2009, President Préval cut ties to the Lespwa movement that elected him in 2006, and formed a new movement, Unity. Opposition groups accused the presidentially appointed electoral council of bias in favor of the President’s new movement. The electoral council disqualified, without explanation about 15 rival political groups, which included members of Lespwa who did not join Préval’s new party. Opposition groups expressed concern that if Unity won a legislative majority, it would push through constitutional amendments, possibly including one allowing Préval to run for another term in 2011. The constitution allows only two non-consecutive terms for a President, and Préval is completing his second term. Préval has promised to step down when his term expires on February 7, 2011, and said he would not run again. There is no clear candidate to succeed him. In February 2010, the electoral council postponed the elections indefinitely. The elections were to determine all 99 seats in the House and onethird of the seats in the Senate. Tensions are likely to increase when those legislative terms expire on May 10, 2010 without replacements having been elected. As mentioned earlier, it is not entirely clear how the government will function after that date. But Haiti passed a State of Emergency Law on April 20 giving the President broad powers and President Préval will probably rule by decree. After May 10 the remaining 19 Senators may continue to meet, however, and the Senate has the power to dismiss the Prime Minister and censure government programs. The international community is urging Haiti to hold legislative and presidential elections in November 2010. Socioeconomic Conditions Prior to the Earthquake Plagued by chronic political instability and frequent natural disasters, Haiti remains the poorest country in the Western Hemisphere. Haiti’s poverty is massive and deep. Over half the population (54%) of 9.8 million people live in extreme poverty, living on less than $1 a day; 78% live on $2 or less a day, according to the World Bank. 67 Poverty among the rural population is even more widespread: 69% of rural dwellers live on less than $1 a day, and 86% live on less than $2 a day. Hunger is also widespread: 81% of the national population and 87% of the rural population do not 67 World Bank, Country Report: Haiti, 2010, http://go.worldbank.org/GBXI5JKM50. Congressional Research Service 31 Haiti Earthquake: Crisis and Response get the minimum daily ration of food defined by the World Health Organization. In remote parts of Haiti, children have died from malnutrition. 68 In order to reach its Millennium Development Goal of eradicating extreme poverty and hunger by 2015, Haiti’s Gross Domestic Product (GDP) would have to grow 3.5% per year, a goal the International Monetary Fund (IMF) says Haiti is not considered likely to achieve. Over the past 40 years, Haiti’s per capita real GDP has declined by 30%. Therefore, economic growth, even if it is greater than population growth, is not expected to be enough to reduce poverty. Haiti has experienced some economic growth since 2004. Economic growth for FY2007 was 3.2%, the highest rate since the 1990s. Before the earthquake, the forecasted growth for FY2009-20010 was 2.5%, reflecting the impact of recent storms and the global economic crisis, and up to 3.5% for 2010-2011.69 The global economic crisis also had led to a drop of about 10% in remittances from Haitians abroad, which in 2008 amounted to about $1.65 billion, more than a fourth of Haiti’s annual income. 70 The likelihood that economic growth will contribute to the reduction of poverty in Haiti is further reduced by its significant income distribution gap. Haiti has the second largest income disparity in the world. Over 68% of the total national income accrues to the wealthiest 20% of the population, while less than 1.5% of Haiti’s national income is accumulated by the poorest 20% of the population. When the level of inequality is as high as Haiti’s, according to the World Bank, the capacity of economic growth to reduce poverty “approaches zero.”71 Long-term Reconstruction Strategy Review of Haiti’s Development Strategy Haiti already had a National Strategy for Growth and Poverty Reduction in place for 2007-2010, supported by the international donor community. 72 As Minister of Planning and External Cooperation from 2006 to 2009, current Prime Minister Jean-Max Bellerive helped to prepare that Strategy. 73 The poverty reduction strategy focuses on three “priority pillars.” The first is areas for growth, focusing on agriculture and rural development; tourism; infrastructure modernization; and science, technology and innovation. The second pillar is human development, concentrating on education and training; health; water and sanitation; persons with disabilities; childhood poverty; young people; HIV/AIDS; and gender equity. The third pillar calls for investment in democratic governance, focusing on the establishment of an equitable justice system; creation of a climate of security; modernization of the state; and political and economic decentralization. 68 “Rural Haitian Children Starving,” Associated Press, November 21, 2008. Economist Intelligence Unit, “Country Report: Haiti ,” November 2009, p. 12. 70 Mike Blanchfield, “In recession, Haitians abroad send less money home,” Canwest News Service, March 17, 2009. 71 World Bank, “Income Distribution, Inequality, and Those Left Behind,” Global Economic Prospects 2007: Managing the Next Wave of Globalization, p. 83. December 1, 2006. 72 Republic of Haiti, Growth And Poverty Reduction Strategy Paper, November 2007, available at http://siteresources.worldbank.org/INTHAITIINFRENCH/Resources/HaitiDSNCRPEnglish.pdf. 73 “New Haitian Prime Minister-designate Profiled,” BBC Monitoring Americas, November 5, 2009. 69 Congressional Research Service 32 Haiti Earthquake: Crisis and Response After a series of devastating hurricanes in 2008, the government of Haiti revised its strategy incorporating the findings of a Post-Disaster Needs Assessment and the U.N.’s “Haiti: From Natural Catastrophe to Economic Security” report, at a donors conference held April 21, 2009, in Washington, DC. The Haitian government outlined the priorities of its new two-year plan, “Haiti: a New Paradigm,” which include investing in strategic infrastructure, improving economic governance and the business environment, improving the provision of basic services, and ensuring environmental sustainability.74 The government was making strides toward meeting goals of its growth and poverty reduction strategy, and some analysts were viewing its potential for sustainable development with optimism. Investors were returning to Haiti and the country was promoting its economic development. The earthquake has [Text truncated at 120,000 characters. The full text is on the page linked above.] --- Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/crs%3AR41023. Public record. Not legal advice.