CONSOLIDATED OVERVIEW OF HUMANITARIAN AIR SERVICES IN PREPARATION OF POST WAR PHASE IN SUDAN AND POSSIBLE INTERVENTION IN THE DARFURS

MAY 2004 UNJLC

United Nations Joint Logistics Centre

South Sudan in Nairobi

TABLE OF CONTENTS 1.0 EXECUTIVE SUMMARY ...... 6 2.0 REVIEW’S OBJECTIVE AND METHODOLOGY ...... 8 3.0 EXISTING HUMANITARIAN AIR SERVICES IN THE REGION OF SUDAN ...... 8 3.1 SERVICES DEPARTING FROM OUTSIDE SUDAN...... 9 3.1.1 Non commercial services into Sudan...... 9 3.1.2 Commercial services into Sudan...... 11 3.1.3 International Committee of the Red Cross (ICRC) ...... 12 3.1.4 Save the Children Fund – UK (SCF-UK)* ...... 12 3.1.5 Mission Aviation Fellowship (MAF)*...... 12 3.1.6 European Community Humanitarian Organisation (ECHO) ...... 13 3.1.7 United Nations Common Air Services for Somalia (UNCAS) ...... 13 3.1.7.1 Management and support...... 13 3.1.8 Services from ...... 14 3.1.8.1 AirServ International and AirServ Limited...... 14 3.1.8.2 MAF Uganda...... 14 3.1.8.3 Other Commercial Companies ...... 14 3.1.8.4 United Nations Mission in the Democratic Republic of Congo (MONUC) .. 14 3.2 SERVICES DEPARTING FROM INSIDE SUDAN ...... 15 3.2.1 Non commercial services into Sudan...... 15 3.2.2 Commercial Air Services ...... 15 3.2.3 Other ...... 16 3.3 Summary ...... 16 4.0 FINDINGS, ADVANTAGES AND WEAKNESSES OF THE CURRENT SERVICES ...... 16 4.1 Services departing from Nairobi and Lokichoggio...... 16 4.1.1 TAF...... 16 4.1.1.1 Advantages...... 17 4.1.1.2 Weaknesses of the present services:...... 17 4.1.1.3 Recommendations for Improvement ...... 18 4.1.2 Commercial Air Services ...... 19 4.1.2.1 Advantages...... 19 4.1.2.2 Weaknesses ...... 19 4.1.2.3 Recommendations for improvement ...... 19 4.2 Services departing from inside Sudan ...... 19 4.2.1 WFP Service ...... 19 4.2.1.1 Advantages...... 19

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4.2.1.2 Weaknesses ...... 20 4.2.1.3 Recommendations for improvement ...... 20 4.2.2 Commercial Air Services ...... 21 4.2.2.1 Advantages...... 21 4.2.2.2 Weaknesses ...... 21 4.2.2.3 Recommendations for improvement ...... 21 5.0 AIRSPACE MANAGEMENT AND CONTROL STRUCTURES...... 21 5.1 Sudanese Civil Aviation Authorities (CAA) ...... 22 5.2 Sudanese Humanitarian Aid Commission (HAC) ...... 22 5.3 Kenya Civil Aviation Authorities (CAA) ...... 22 5.4 Uganda Civil Aviation Authorities (CAA)...... 23 5.5 Command and Control Procedures in place at present for South Sudan...... 23 5.6 Airspace Management Coordination Aspects...... 23 5.6.1 Flight clearances...... 24 5.6.2 Flight Following ...... 24 5.7 Air Traffic Control (ATC) at main operations bases...... 25 5.8 Search and Rescue (SAR), Medical evacuation (Medevac), etc...... 25 5.9 Options for Improving airspace management and control structures ...... 25 6.0 OTHER CONCERNS RELATED TO THE POST WAR PHASE ...... 26 6.1 Immigration and Custom entry points ...... 26 6.2 DPKO vs. Humanitarian services with regards to priorities and access, etc ...... 26 6.3 Increased aviation requirement ...... 26 6.4 Status of OLS with regards to UN and non-UN aircraft...... 26 7.0 POSSIBLE AIRLIFT REQUIREMENTS IN S. SUDAN/DARFUR...... 27 7.1 UN Agencies (WFP, UNICEF, UNHCR, IOM, OCHA)...... 27 7.2 CONTINGENCY PLAN...... 27 7.2.1 Possible intervention into DAFUR ...... 28 7.2.1.1 Air Operation ...... 28 7.3 Issues regarding cost-effectiveness of air operations...... 29 8.0 OPTIONS FOR OPTIMISING OPERATIONS ...... 29 8.1 Clearances ...... 29 8.2 Suitability of Lokichoggio...... 30 8.2.1 Recommendations for improvements ...... 30 8.3 Feeder Services, operations bases, destinations...... 30 9.0 AIR OPERATIONS INFRASTRUCTURE IN SOUTH SUDAN ...... 30 9.1 Overview...... 30

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9.2 Problem areas...... 33 9.3 Suggestions for improvements ...... 34 9.4 Security ...... 34 10.0 DONOR COMMENTS ON THE CURRENT AVIATION SYSTEM ...... 34 11.0 RECOMMENDATIONS ...... 35 11.1 Humanitarian Air Service ...... 35 11.2 Infrastructure ...... 36 11.3 Coordination with DPKO ...... 37 11.4 Civil Aviation Issues ...... 37 11.4.1 Other ...... 38 12.0 LIST OF ANNEXES AND REFERENCES:...... 39

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1.0 EXECUTIVE SUMMARY

The overview of the Aviation Specialist (AS) was required to make recommendations for drafting a plan to adapt the existing aviation systems in South Sudan to an inter-agency aviation service, anticipating higher demands during the post war phase. Nevertheless, because of the increasing humanitarian needs in Western Sudan, the scope of the overview was widened to include options for supporting humanitarian operations in Darfur.

A vast number of Agencies and individuals were consulted during the overview and their inputs have been noted.

A strong Humanitarian system is presently in place that is being conducted from the North (Khartoum and from the South (Lokichoggio). These systems vary in accounting as the system in the North is done on a “free” basis (SO and EMOP) whilst the system in the South (Targeted Aircraft Funding-TAF) is on a full cost recovery basis. The full cost recovery system has the effect that costs per routing can vary from day to day. The North supports all Humanitarian Agencies for passenger movements and a parcel service, whilst the South supports those Agencies affiliated to the Operation Life Line Sudan (OLS) for passenger and non-food items movement. The two systems, from Khartoum and Lokichoggio, essentially run independently from each other.

Commercial Aviation assistance in Sudan is limited and not very reliable except from the South (Lokichoggio). The flights from Lokichoggio however are, as far as can be ascertained, not conducted in accordance with accepted international aviation regulations. A capacity to move medium to heavy lift cargo from the South is also restricted in the present commercial market. The commercial market indicated that they will rapidly expand their services into Sudan as soon as the situation normalises and security aspects improve.

The South moves approximately 20,000 passengers per annum and the North approximately 7,000. In order to generate this service the North has an average of 4 light aircraft on contract whilst the South has 12 light and medium aircraft on contract.

Various other Humanitarian Agencies also operate aircraft in Sudan such as ICRC, MAF, SCF-UK and Samaritans Purse.

In general the Humanitarian community expressed their satisfaction with the service currently being offered. Some concerns were noted and recommendations in this regard had been formulated. These include issues relating to transparency, prioritisation, fixed cost concerns and coordination forums. The majority of these UN related issues would be alleviated with the establishment of a Users Group Committee (UGC) in implementation of WFP Directive OD2004/001 dated 13 Jan 2004.

The majority of Agencies foresee an expansion of their programmes provided the peace process moves forward and peace is maintained.

Other concerns voiced by NGO’s were the restriction from the GoS with regards to clearances and access to some locations. It is the view of the AS that these concerns will be addressed during the formalisation of the peace framework. The GoS also indicated that the clearance process will be simplified after the peace framework had been formalised. A number of stake holders voiced concern with regards to prioritisation and access between the Humanitarian Community and the Department of Peace Keeping

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Operations (DPKO) once DPKO is deployed. It is recommended that a coordination process takes place between DPKO, UNJLC and HAS on procedures for de-conflicting humanitarian and military traffic.

A major concern that had been identified is the lack of sufficient Airspace Management in Sudan. This includes, but is not limited to flight control, flight following, Search and Rescue, Air traffic control at airfields and general aviation safety. This is the responsibility of the Government of Sudan. However it must be noted that the Sudan Government and the authority in South Sudan have very limited capacity in this regard. It is recommended that assistance be sought from DPKO as well as other Member States in order to create sufficient capacity thereby ensuring that aviation safety is not jeopardised in the post war phase.

A contingency plan is in place for a possible break down of the peace process as well as intervention into the Darfurs. The present aviation assets are sufficient to cope with such a requirement in the short term. It is recommended that the situation be monitored very closely and sufficient additional air assets be acquired if required.

Various roads are being rehabilitated by UN WFP as well as UNMAS. This will create new opportunities to move commodities by road thereby reducing transport costs. The barge option for the Nile is also being studied and this may become a reality in September 2004. Once again this will also reduce costs and give access to previously inaccessible areas.

It is envisaged that there will be an initial increase in demand for aviation assistance to comply with the increased demand. Gradually the increased demand on Humanitarian aviation capacity, mainly WFP assets, will reduce as the roads become more accessible and commercial transport by land, water and air is being established.

It is foreseen that a gradual migration from UN Air assistance to commercial air assistance will take place as the commercial market develop. It is also envisaged that the Operation out of Lokichoggio will slowly migrate into Sudan, possibly or Rumbek. Various recommendations are formulated concerning security as airfields, general aviation safety aspects and maintenance. These are discussed in detail later in the report.

At present more than 300 airstrips are in use in Sudan. The majority of these strips are not certified or licensed, nor are they deemed safe. In an emergency Operation such as this, extreme care is to be taken to avoid any mishaps and incidents. It is recommended that identified airstrips be improved where possible to enhance overall safety. A reference guide (Jungle Jeppesen) is being compiled in order to assist aircrew during planning. Such a reference guide will be for information purposes only and should not be considered as a legally approved aviation document.

It is also recommended that an interim mutual Search and Rescue plan be formulated in cooperation between the national CAA, ICAO, DPKO and WFP.

It is recommended that liaison at senior level takes place between DPKO and UNWFP in order to coordinate and assist each other in Aviation matters for the post war phase in Sudan.

It is the AS conclusion that a dedicated Air Service will be vital for supporting humanitarian assistance in South Sudan, in particular during the initial post-war phase. As the situation evolves and the aviation safety and security environment improve, the need for such an Air Service may decrease gradually. In addition, the lack of security and the

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increasing need for transporting humanitarian workers into the Darfurs may require a significant augmentation of the passenger air transport capacity in Khartoum. Therefore it is recommended that the necessary actions are taken to adapt the current services into a centrally managed common United Nations Humanitarian Air Service for both, the humanitarian crisis in Darfur and the post-war phase in South Sudan. This Service should consist of a network of one fixed operations base in Khartoum and at least one more fixed operations base in the South from where light aircraft are dispatched to field destinations. It is further recommended that attention be given to fixed scheduling, fixed costing, transparency and the urgent implementation of WFP Directive OD2004/001 dated 13 Jan 2004.

2.0 REVIEW’S OBJECTIVE AND METHODOLOGY

Under the immediate supervision of the Head Core Unit UNJLC Rome and with technical support from UNJLC Planning Units in Khartoum and Nairobi, the Aviation Specialist (AS) was tasked to review aviation matters in Sudan and region and, in view of possible increasing needs during the repatriation/return phase, advising on the establishment of air management, planning and coordination structures for conducting humanitarian air operations within the region. The AS was to liaise closely with all relevant national and local authorities and World Food Programme (WFP) on all matters relating to the terms of reference.1

During the execution of this task various consultations were carried out with a great number of stake holders. Various meetings were held where interested parties were given the opportunity to present inputs, voice their concerns and offer suggestions which was noted.

During the task an effort was made to ensure maximum participation over the widest front bearing in mind the scope of the task and the limited time available.

Some role players were not available for consultation and their representatives had to be consulted. This may have caused some information to be slightly distorted although the main gist had been captured. In order to ensure accuracy, information was verified as far as possible.

A number of Agencies, Organisations and stake holders had been consulted. A list of contact persons is attached in Annex A.

3.0 EXISTING HUMANITARIAN AIR SERVICES IN THE REGION OF SUDAN

At the present moment there are two main UN Humanitarian Air Services available to the Humanitarian Community. The one service originates out of Lokichoggio, Kenya and the other from inside Sudan namely Khartoum. The main logistical hub for the service from Kenya is Lokichoggio close to the Sudanese southern border. Lokichoggio is mainly served from Nairobi by a regular commercial service from either Wilson Airport or Jomo Kenyatta International Airport. The UN-WFP does not operate any service from Nairobi to

1 According to TOR issued by UNJLC

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Lokichoggio as the commercial aviation services offered are reliable and conform to accepted aviation safety regulations.

From within Sudan the UN-WFP service from Khartoum is available to the Humanitarian community and the majority of humanitarian agencies make use of this service. The service is managed by UN WFP on behalf of the Humanitarian Community. There are limited commercial services available from Khartoum to the field and those services as such are not reliable nor are they frequent enough to satisfy the needs of the Humanitarian community. Various NGO’s and Agencies have voiced their concern with regards to the safety standards of these commercial services.2

3.1 SERVICES DEPARTING FROM OUTSIDE SUDAN

3.1.1 Non commercial services into Sudan

The existing Humanitarian Air Service that is presently operational in South Sudan is known as Targeted Aircraft Funding (TAF). Under this model all humanitarian flights are accomplished on a full cost recovery basis. At present only humanitarian Organisations that are part of Operation Lifeline Sudan (OLS) may utilise this service. There are at present 96 Organisations or account holders making use of the service. See Annex B and C.

The main Operation takes place out of Lokichoggio and the aircraft route in and out of Lokichoggio on a daily basis. A MOU between the Kenyan Air Port Authorities and WFP is in effect and spells out the modalities of this arrangement. Please see Annex U.

In addition to the WFP contracted aircraft Save the Children Fund–UK (SCF-UK) and Mission Aviation Fellowship (MAF) have their own aircraft to support their operations as well as their implementing partners. Their aircraft are “affiliated” to the UN-WFP and as such conform to all regulations pertaining to the OLS consortium.

All WFP contracted aircraft as well as “affiliated aircraft” (SCF-UK -Safe the Children Fund-, MAF – Mission Aviation Fellowship) perform their tasks on a “legal” basis all flights are covered with the accepted clearances, etc from all authorities concerned.

Agencies within the OLS consortium are not permitted to contract any aircraft for services into Sudan that is not part of the UN-WFP fleet. This is mainly due to safety considerations and legality of such flights.

The Agencies are to abide by all the OLS regulations pertaining to flight Operations as well as security arrangements as spelled out by OLS Security Section and the OLS Security Ground Rules.

All users are required to ensure that sufficient funding is available in their WFP aviation account prior to any flight being undertaken. Under extreme cases the OLS Management may grant authority for a flight to proceed without funds being available.

There are over 300 locations that have been served in the past few years. The amount of locations served varies from month to month depending on the activities of the various

2 NGO’s indicated their concern during consultations in Khartoum by the AS.

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NGOs as well as the “food drop” locations. In the past three months 164 have been served (see attached list of airfields as well as locations served in the last three months- Annex D.

A Comprehensive list and restrictions of airfields in South Sudan is reflected in Annex E.

OLS Security provides relocations and evacuations on a free basis and flight costs are recovered from the OLS Security budget. OLS Security will evacuate/relocate all OLS international staff applicable as well as staff from agencies outside of OLS on a space available basis.

Special flights (outside the normal OLS agreement) may be granted by the OLS Management on a case by case basis.

The TAF model is managed by the Chief Air Transport Officer (CATO) and suitably qualified staff located in Lokichoggio, Nairobi and Rome.

A monthly User Group Committee, the OLS Air Transport Group (OATG) has been established to discuss pertinent issues relating to the present Operation. This group ensure sufficient feed back to users as well as addressing any concerns that may arise. This forum is similar to the User Group Committee (UGC) mandated in OD2004/001 dated 13 Jan 2004. This UGC mandate had been watered down due to lack of participation from NGO’s as well as WFP not being represented by the CATO. The chair is at present being rotated amongst the members causing a low level of continuity. Up to the moment of drafting this overview a TOR for this UGC could not be found.

The procedure for TAF flights is taken up in the TAF Standard Operating Procedures SOP as spelled out in Annex B.

During 2003 the following hours and services were generated by the UN-WFP flights originating from the South (Lokichoggio):3

Hours flown for passenger transport: 15,875 Passengers transported: 22,001

Average cost for passenger service: $10 500 000

Hours flown for Non Food Items: 4 000

Total Metric Tons transported: 6 500

Total cost for NFI transport : $9 000 000

The present aircraft on contract for Humanitarian Passenger transport and NFI transport are as follow:

6 Cessna Caravans C-208

1 Cessna Caravan C-2084

3 Statistics supplied by Air Operations Lo