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Mr. CHARNY: The approach of the U.S. government, up to now, has been so absolutist. They're basically saying that the diversion of almost, literally, a cup of rice constitutes grounds to more of less shut down an entire aid program for hundreds of thousands of vulnerable people. KELEMEN: And that's essentially what has happened. The U.N.'s humanitarian coordinator for Somalia, Mark Bowden, says the U.S. has gone from the number one aid donor to Somalia to seven or eight, but he's hoping that will change. Mr. MARK BOWDEN (U.N. Humanitarian Coordinator for Somalia): No operation in Africa, particularly in Somalia, is risk-free. And I think what we're saying at this time is that donors have to accept and share some of the risks that organizations already working there are dealing with. KELEMEN: Some U.N. agencies have managed to get supplies into Somalia, but Charny of InterAction says it will take time and trust to get a serious aid operation going. For now, aid groups will only be able to reach a fraction of those in need. Mr. CHARNY: And then I think the hope would be that if trust is built back, those on the U.S. government side that aid isn't being diverted, and on the al-Shabaab side that, you know, we're not a part of some nefarious Western plot -as trust is built up, maybe those numbers would expand. KELEMEN: For now, the U.S. is aiding mainly those Somalis who managed to get out to neighboring Kenya or Ethiopia. That's adding to tensions with those countries, which want donors to do more inside Somalia and slow refugee flows. Michele Kelemen, NPR News, Washington.