Microsoft Word Minadanao I A S C Initial Needs Assessemnt Report

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Report of the IASC Country Team in the Philippines on the Rapid Initial Needs Assessment in Mindanao

13 September 2008

IASC COU�TRY TEAM I� THE PHILIPPI�ES

Initial �eeds Assessment Mission to Mindanao

4-5 and 7-10 September 2008

Contents

Executive Summary

Report

Annex A: Abbreviations and Acronyms

Annex B: Record of Assessment Team Mission Activities

Annex C: Assessment Team Members

Annex D: Thematic Map of Mindanao

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Acknowledgements:

The IASC Country Team would like to thank all who supported the Assessment Team in various ways.

Special thanks are due to UNICEF, WFP, IOM, Oxfam and OCHA for their support through direct

participation in the assessment, as well as administratively and logistically to facilitate the field visits. The

UN Office of the Resident Coordinator and UNDSS were also very helpful in making a successful assessment

possible. We would also like to thank the International Monitoring Team, ICRC and NGOs for taking the

time to talk to the Assessment Team, and our donor colleagues for their support generally and for attending

the Assessment Team’s briefing. Lastly, we would like to express our sincere appreciation to the

representatives of the Government of the Republic of the Philippines, the National Disaster Coordinating

Council and Disaster Coordinating Councils (DCCs) at all levels of regional and local government, Local

Government Units (LGUs) and lastly, in particular, the people of the towns and villages of the provinces of

Mindanao which were visited.

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Executive Summary

Background: The outbreak of fierce fighting between the Armed Forces of the Philippines (AFP) and Moro

Islamic Liberation Front (MILF) in August 2008 severely affected those communities caught up in the

hostilities. By 9 September the National Disaster Coordinating Council (NDCC) reported1 that 62 civilians

had died as a result of the fighting, of which at least seven were minors, including a 1 year old girl who died

of gunshot wounds. A further 86 had been wounded, 17 of them minors. 202 homes had been destroyed and

the cost of damages to infrastructure and agriculture stood at Php 121,493,061.00 (2,598,865.4395 USD).

They further estimated that 107,224 families (511,090 persons) were currently affected by the fighting and of

those 74,592 families (365,012 persons) were displaced. These Internally Displaced Persons (IDPs) had fled

the fighting carrying what possessions they could upon carts and bicycles and where they did not have these,

upon their backs. They came to Evacuation Centres (ECc) set up by the local authorities predominantly in

schools, creating a situation that will have an increasingly negative effect on education for as long as the

current crisis lasts. There was and continues to be no clear pattern to the displacement which is characterised

by highly mobile IDPs showing increasing signs of emotional and mental trauma, many of whom are

repeatedly displaced by fighting or rumours of fighting. Just as sustained displacement places a significant

burden on local coping mechanisms, so too does this repeated cycle of often short-lived displacement but over

an increasingly prolonged period.

Humanitarian Situation: The Assessment Team assessed that the current situation in the areas which they

visited both in the ECs and elsewhere, is with some notable exceptions, fair. However, despite the efforts of

the national and local authorities, there are issues related to water and sanitation at most ECs. This results

from access to potable water often being limited, poor hygiene practices frequently observed, insufficient

sanitary and hygiene facilities and poor human and solid waste management. This had directly contributed to

the spread of diarrheal and other diseases in several of the camps visited. Local health services were very

active but understandably stretched. The majority of IDPs required and were receiving food assistance which

was validated and endorsed by local authorities both as a matter of good practice and to address concerns of

food dependency. Undernourishment and micronutrient deficiency among children and pregnant and

lactating women were being addressed but will continue to require action. Camp management was an issue in

most locations as the ECs are not purpose-designed to house IDPs and considerable effort and experience is

required to modify them to suit this purpose. In certain sites that the team visited such as Datu Piang, the

situation was serious; these sites require considerable work before the issues of concern can be resolved.

Protection related issues for all of those affected remain a concern. Lastly, the Assessment Team observed

that many of the IDPs were pale, listless and unresponsive to external stimuli, indicating widespread and

potentially severe mental and emotional trauma.

Humanitarian Response: The team was uniformly impressed with the humanitarian response underway at

all levels by the national and local authorities and their humanitarian partners. Coordination and response is

well managed by the NDCC through Government Cluster Leads, Disaster Coordinating Councils (DCCS) at

all levels of regional and local government and Local Government Units (LGUs). However there are, as

always, some coordination issues affecting the response, particularly in Shariff Kabunsuan and Maguindanao.

To date Php 60.1 Million (1,288,179.221 USD) of rice, clothing, food packs, medicines, tents and other relief

items have been delivered both inside and outside ECs. Department of Health authorities and local health

workers continue to conduct psychosocial debriefing and address a broad range of health needs ranging from

the treatment of trauma injuries to mass immunization programmes and child and maternal health care.

United Nations agencies, funds and programmes, NGOs and IOs continue to support national and local

response structures when and where required. The Assessment Team recommend that the IASC Country

Team recognise and reaffirm the need for all parties to work within the framework of existing

1 NDCC Situation Report No. 32, 9 September 2008.

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government response structures and mechanisms, in order to ensure the coordinated and effective delivery

of assistance.

Summary of Assessment Team Recommendations: Despite a well managed and administered

response, there are certain areas in which the Assessment Team recommends targeted humanitarian

assistance interventions by IASC partners in support of local authorities. These are chiefly in Camp

Management, Water and Sanitation and Hygiene (WASH), Health, Protection (with a particular focus on

psychosocial support), and Food. Detailed recommendations in these areas and others are made in the

main body and at the end of the report. As important - if not more so - than these specific interventions, is

the strengthening of development programmes currently being implemented and the launch of new

programmes, particularly those which deal with all aspects of livelihoods and livelihood generation.

These programmes address many of the issues which are at the core of the current conflict, supporting the

premise that if more of those involved in the fighting had more to lose, perhaps they might think twice

before taking up arms. IASC partners are encouraged to work closely with Donors to identify funding for

the strengthening of existing development programmes and in order to jointly identify and implement

development programmes not currently in use but which have enjoyed success when implemented in

similar situations elsewhere. Lastly, whilst it was clear to the Assessment Team that local coping

mechanisms are robust enough to deal with the current situation, there was significant concern that should

the fighting continue over a prolonged period or should another natural phenomena strike the area and

have significant humanitarian consequences, local coping mechanisms may well be overwhelmed. The

Assessment Team therefore recommends that IASC partners commence a coordinated Inter Agency

Contingency Planning Process following the established IASC guidelines, in order to prepare for a larger

scale humanitarian response in support of National Authorities should the need arise. This process should

start as soon as possible and should consider all aspects of a potential response including the actions

which should be undertaken now to support that response, such as the stockpiling of humanitarian

supplies in Mindanao. Key to the success of this planning and implementation, if required, are current

limitations in programme support capacity in Mindanao, such as limited communications and Safety and

Security services, which should be addressed as a matter of priority in the contingency planning process.

�ote: At the time of writing it is generally understood by the IASC CT that the current GRP position with

regards to external assistance in response to the humanitarian situation in Mindanao is that whilst they

have now welcomed targeted and coordinated assistance they do not want to ‘Internationalise’ the

operation and would not currently support an emergency appeal2.

Summary of Recommendations for Consideration of IASC Country Teams

1. Targeted humanitarian assistance interventions by IASC partners in support of local authorities to

be undertaken as soon as possible in the areas of:

• Camp Management

• WASH

• Health

• Food.

• Protection– with a particular focus on psychosocial support

2. Strengthening of existing development programmes and launch of new development-focused

initiatives to tackle the root causes of the conflict to be considered by all IASC partners.

3. IASC Inter Agency Contingency Planning for a potential humanitarian response operation to

Mindanao in support of national and local authorities to be undertaken as soon as possible.

2 Also outlined in note from the President GRP to Government Cluster leads and NDCC given to the team on 11.09.08

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IASC COU�TRY TEAM I� THE PHILIPPI�ES

Report of the Rapid Initial �eeds Assessment Mission to Mindanao

14 September 2008

A. Overview of the situation

Conflict-induced displacement in the Philippines has affected several thousand people over the past three

decades, mainly in the southern island group of Mindanao3. The current displacement incident that

triggered a concerted response by the National Disaster Coordinating Council (NDCC), the chief

government coordinating body for disaster operations and rehabilitation efforts, was sparked by

operations carried out by ‘renegade’4 members of the Moro Islamic Liberation Front (MILF) over a two-

week period beginning 10 August 2008. Two MILF Base Commands attacked communities in the

provinces of Lanao del Norte in Northern Mindanao, Region X, North Cotabato, South Cotabato and

Sarangani in Region XII, as well as Lanao del Sur and Basilan in the Autonomous Region in Muslim

Mindanao (ARMM). The attacks were followed by government punitive counter-operations, which also

contributed to increased displacement.

The pattern of displacement in the conflict affected areas of Mindanao makes it very difficult to estimate

an accurate total number of people displaced, as displacements are often for short periods but are

repetitive and with many IDPs ‘home based’ (hosted by families). The IDP caseload resulting from the

August fighting is not an exception. The most often sited estimates are those of the NDCC5, who report

that the number of IDPs in Regions X, XII and ARMM is around 365,012, with about 54,279 families

(264,370 persons) living with host families and communities and about 20,313 families (100,642 persons)

in Evacuation Centres (ECs). Region X has 24 ECs housing 16,382 evacuees; Region XII has 40 ECs

housing 10,090 persons; and ARMM has 64 ECs housing 74,170 persons. The total number of ECs stands

at 128. Civilian dead stand at 62, at least seven of whom are minors, and a further 86 civilians have been

injured, 17 of whom are minors.

Moro �ational Liberation Front (M�LF)

Mindanao is the centre of the Bangsamoro homeland and it is the status of this homeland that is at the

centre of separatist claims by the Muslim (or “Moro”) rebel groups6. At present, there are two main

groups: the MNLF which was the first Moro armed separatist group founded in 1971, and the MILF, a

splinter group created in 1984 by former MNLF fighters. There have been a number of attempts to find a

peaceful solution to the conflict with the MNLF signing a peace agreement with the Government of the

Republic of the Philippines in 1976. This agreement had limited success and led to the signing of a

second agreement in 1996, which established the ARMM giving predominantly Muslim areas of

Mindanao some degree of autonomy.

3 IDMC (2008) estimates that the total number of people displaced by armed conflict in the Philippines during the period

2000-2007 is at 2.1 million. 4 These ‘renegade’ units are the 102

nd Base Command under Commander ‘Bravo’ and the 105

th Base Command under

Commander Umra Kato. Both leaders have broken away from MILF Central Command and it is critical to the

understanding of the current situation that at the time of writing the majority of the MILF are not involved in combat

operations. 5 NDCC Situation Report No. 32, 9 September 2008.

6 The Bangsamoro people refers to those who are natives or original inhabitants of Mindanao and its adjacent islands

including Palawan and the Sulu archipelago at the time of conquest or colonization. Their descendants are mixed or of full

native blood.

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Moro Islamic Liberation Front (MILF)

The MILF is based in central Mindanao, enjoying some support in rural areas where lack of economic

development has encouraged dissent. Peace talks between the government and the MILF began in 1996

during the Ramos Administration. In March 2000, the government launched an “all-out war” against the

MILF which resulted in the displacement of thousands of people. The present administration restarted the

peace talks the following year with the General Framework for the Resumption of Peace Talks between

the Government of the Republic of the Philippines (GRP) and the MILF. Conflict resumed in 2003 in the

same areas, causing new waves of displacement. Between 2003 and 2007, dialogue and peace-building

measures prevented the continuing sporadic clashes and army operations against criminal gangs from

turning into large-scale confrontations involving the MILF. In October 2004, a Malaysian-led

International Monitoring Team (IMT) was established in Mindanao to oversee a cease-fire agreement

between the government and the MILF, yet peace negotiations have stalled since 2006.

Recent Peace Process

Hopes of an imminent peace agreement were raised in July 2008 when the government and the MILF

appeared to have reached a consensus on the issue of Moro territory with the Memorandum of Agreement

on Ancestral Domain (MOA-AD). Perhaps anticipating the signing of the MOA or perhaps simply as a

normal pattern of raiding for supplies, renegade MILF units occupied 15 Barangays in North Cotobato in

July 2008. When efforts to move them using diplomacy failed, fighting between the MILF and AFP broke

out and grew quickly to affect neighbouring areas, leading to displacement. This situation worsened

when on 4 August, just one day before the MOA signing ceremony, the Philippines Supreme Court,

prompted by complaints from local officials of North Cotabato and Zamboanga provinces as well as from

Mindanao Christian groups, issued a Temporary Restraining Order (TRO) on the MOA pending a review

of its constitutional validity. This prompted a fierce MILF backlash which culminated on 18 August with

the 102nd Base Command’s attack on Kolambugan, Kauswagan and Linamon municipalities in Lanao del

Norte. This incident saw the active targeting of civilians, wanton destruction of property, hostage-taking

and murder and triggered significant displacement. Reports of torture and mutilation were also received.

Other causes of displacement and vulnerabilities

The violence emanating from the recent failed peace talks fell on top of a series of other factors of long-

standing instability and displacement. The underdevelopment of the region is a deep seated root cause of

the conflicts in Mindanao. Although the establishment of ARMM raised hopes of social and economic

development, all six ARMM provinces continue to rank amongst the poorest in the country7. In 2007 and

2008, Mindanao, and in particular ARMM, suffered from high food prices as well as food shortages.

Furthermore, five provinces of Mindanao have been identified as disaster-prone areas by the Office of

Civil Defence (OCD)8.

There are also various other groups whose activities and presence contribute to the general instability of

the environment. Amongst these are extremist organisations such as the Abu Sayaff Group (ASG) and

Jemaah Islamiyah (JI) who are the focus of counter terrorist operations. The National People’s Army

(NPA) who have been active in the past are, for the time being, fairly quiet. Vigilante groups such as the

Ilago9 and other armed civilian groups such as the Civilian Volunteer Organisations (CVOs) are a

potential source of trouble. Widespread banditry, clan fighting and criminal activity also contribute to the

general lawlessness.

7 The six provinces are Tawi-Tawi, Maguindanao and Lanao Del Sur in the ARMM, Zamboanga Del Norte in Region IX,

Surigao Del Norte in Caraga Region, and Misamis Occidental in Northern Mindanao in Region X. 8 The five provinces are Surigao del Sur, Surigao del Norte, Zamboanga del Sur, Agusan del Norte and Zamboanga

Sibuqay. 9 A Vigilante group in Mindanao who were most active in the 1970s

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Of critical import to the current assessment for its effect on local coping mechanisms was the severe

flooding in the aftermath of Typhoon Frank, in July 2008, of North Cotobato, Maguindanao, Shariff

Kabunsuan and neighbouring areas.

B. Purpose and objectives of the assessment

The primary objective of the mission was to establish a common operating picture of the humanitarian

needs in the conflict affected areas of Mindanao by identifying:

• The impact of the current fighting on local communities, their infrastructure and their coping

mechanisms

• Those groups which are most vulnerable and should be targeted for assistance

• The type and nature of the national, regional and local government response to any emerging

humanitarian needs and any gaps in their capacity to respond

• The type and nature of civil society, national and international humanitarian organisations’

response operations underway

• The most urgent relief needs and potential methods of meeting them most effectively

• The coordination mechanisms in place, their strengths and weaknesses and methods of

supporting strengthening them as required

• Any significant political cultural and logistical constraints.

In order to:

Provide the IASC Country Team with recommendations which define and set priorities for the actions

and resources required in the immediate future, highlight any particular concerns and draw attention to

geographic or thematic areas which require further in-depth assessment/follow-up in support of the

Government of the Republic of the Philippines.

C. Methodology

On 2 September 2008, the IASC Cluster Co-leads10 under the leadership of the UN Resident Coordinator,

a.i., met and agreed on the need to urgently mount a rapid initial needs assessment to Mindanao and

consensus on how that mission might be conducted. A planning session followed during which various

elements of the assessment were thought through and tasks distributed.

The six-day field visit was undertaken in two phases due to the geographic, logistical and security

constraints. The first took place during 4-5 September, and the second from 7-10 September. Four

conflict affected provinces were covered, including Lanao del Norte, North Cotabato, Maguindanao and

Shariff Kabunsuan. The Assessment Team consisted of six members representing IOM, OCHA, Oxfam,

UNICEF and WFP11. Collectively, the team covered sectors and thematic areas of Health, Nutrition and

WASH, Food, Camp Management, Shelter, Protection and Education, Communications and Security

issues, and Coordination. These were deemed by the IASC Country Team as key sectors for the

assessment. Early Recovery was not addressed separately but as a core component of each thematic area.

10 The IASC Country Team in the Philippines consists of UN agencies, international NGOs, the Red Cross/Red Crescent

Movement and the private sector’s Disaster Management Network. The IASC Co-leads are the Government Cluster

Lead counter points within the IASC Country Team.

11 See Annex X for the list of Assessment Team members.

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Data collection The Assessment Team followed the methodological approach developed by the NDCC in partnership

with the IASC Country Team, using the rapid assessment form which is at Annex A to NDCC Standard

Operating Procedure (SOP) of August 2008. Although the SOP was designed to address post-natural

disaster scenarios, the rapid assessment form was adaptable to complex emergencies. The team tailored

the form to fit this current assessment.

The Assessment Team also used a range of standardized approaches and procedures to gather

information. A series of interviews were conducted with local government authorities including

Provincial Governors, provincial administrators, and representatives of the regional and provincial

disaster coordinating councils as well as health, social welfare and development offices. The team also

met with representatives of AFP, MILF, the International Monitoring Team, ICRC, NGOs as well as

displaced persons. These interviews were based on the vulnerability and capacity flowchart which is at

Annex B to NDCC SOP. The team members also triangulated information for confirmation through

observation of the surroundings, visits to the evacuation centres and IDP camps as well as secondary

sources of information.

Limitations While the purpose of the assessment is to establish a broad snapshot of the emergency based on an

assessment of a given area in a particular point in time, the team was cautious about generalising to the

entire situation. The team made efforts to ensure that the areas being assessed provided an accurate

picture of the needs, coping patterns and priorities. Nevertheless, it must be clear to readers that the team

did not visit all of the affected areas and that their findings are correspondingly affected.

The areas targeted for the assessment lacked baseline information in several key sectors. Such data are

useful in differentiating between chronic and emergency needs. However, team members had extensive

experience in delivering assistance in Mindanao, and were able to distinguish, in broad strokes, what is

normal for the location and what is occurring due to an emergency.

The Assessment Team was aware of the inherent political and economic pressures in the conflict affected

areas. The team generally decided on who to interview and where to undertake the interviews. Since

intentional and contextual biases are inevitably part of doing assessments, the team frequently held candid

discussions amongst themselves to minimise the effects of biases as much as possible.

D. Overview of the Assessment Team’s Activities and Findings by Area:

1. Phase 1: 4 to 5 September - Lanao del �orte

Assessment Team Activities: The Assessment Team visited Lanao del Norte on 4 and 5 September,

where they met with the Provincial Administrator and staff of the Provincial Disaster Coordinating

Council (PDCC), assessed four ‘evacuation centres’12 where IDPs were housed and attended an NGO

Coordination meeting hosted by the PDCC before departing the area. The visit afforded the team the

opportunity to talk not only to Provincial Authorities but to also speak to IDPs and their community

leaders, locally based UN colleagues, NGOs, Military Officers and other interested parties.

12 “Evacuation centres”, as is usual in the Philippine context, are those buildings that are traditionally the points of convergence during times of

displacement, such as: public school buildings, churches, and public parks (or plazas). More often than not, spontaneous evacuation centre-

like situations (camp-like situations) are likewise observed.

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�ote: Of considerable frustration to the team was their inability to access IDPs reported to be in the

interior of the province due to the ongoing fighting and corresponding security restrictions. Whilst this

lack of access affected the team’s ability to make an accurate initial assessment, interviews with IDPs

from those areas and other reports furnished the team with at least partial information upon which to

draw conclusions. It is recommended that the situation of the IDPs in the interior of Lanao del �orte

be as closely monitored as possible until such a time as access allows an initial assessment to be

conducted by staff in the area.

General Observations: The vast majority of those still displaced are in ECs in the villages and towns

along the coastal road. IDPs fall into three main categories:

• Those people who have lost their homes

• Those people who live in areas currently affected by fighting who are to frightened to return

• Those people who are either traumatised by the fighting or live close but not in areas of conflict

who return to their homes during the day but stay in the relative safety of the ECs at night.

Humanitarian Situation: The situation in the camps visited by the Assessment Team in Lanao del

Norte was fair. There are some areas in which SPHERE standards are not met to the letter but every

effort has been made to consider and meet these standards where possible. WASH is the one area of main

concern, with access to water and disposal of all types of waste an issue. If this is not addressed promptly

there will be implications on the health situation. Linked to this are broader concerns related to correct

camp management. Of note was the importance of the current WFP food distribution programme which

is sustaining IDPs and should be continued for the duration of the current displacement. Many of the IDPs

that the team met exhibited symptoms of severe emotional trauma and whilst some were the target of

psychosocial interventions, there was a limited local capacity for this type of activity.

Humanitarian Response and Coordination: The humanitarian response followed established plans

with the Municipal Disaster Coordinating Councils (MDCCs) managing the first response with the

support, guidance and coordination of the Provincial Disaster Coordinating Councils (PDCCs). The

PDCCs were in turn supported by the Regional Disaster Coordinating Council RDCC (RDCC Region 10)

with the entire operation managed at the national level from the National Disaster Coordinating Council

(NDCC).

The team assessed the local (Municipal and Provincial) response as being well coordinated although

Provisional Authorities reported that coordination between themselves and Municipal Authorities was on

occasion problematic and required strengthening. They also reported that coordination between members

of the PDCC could also be better citing the example of the Integrated Provincial Health Office who was

doing good works but in what they felt was an uncoordinated fashion. Coordination with NGOs and

other humanitarian actors also appeared to need strengthening with both Provisional Authorities and

military actors saying that NGOs had to stop acting independently for both reasons of coordinated service

provision and security.

Summary: Generally a very well run response with some areas of need requiring targeted humanitarian

interventions in support of the local authorities and in coordination with the N/RDCC. These are in

WASH, Health, Camp Management, Food Assistance and psychosocial counselling as detailed in the

needs by sectors/thematic area later in this report.

2. Phase 2: 7 to 10 September - Shariff Kabunsuan, Maguindanao and �orth Cotobato

Assessment Team Activities: The Assessment Team visited Shariff Kabunsuan, Maguindanao and

North Cotobato from 7 to 10 September and met with the Provincial Governors of Shariff Kabunsuan and

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North Cotobato, the Provincial Administrator of Maguindanao, staff of the PDCCs, Provincial Social

Welfare and Development Office (PSWDO) and IPHO in each area. The team also met representatives of

the MILF, AFP, NGO community, ICRC and ARMM RDCC. In addition the team conducted site

assessments of four IDP locations.

General Observations: The situation in the three provinces visited was significantly different to that

which the team had seen in Lanao del Norte. Many of the areas which the team visited had been affected

by the flooding which had followed Typhoon Frank in July. PDCCs, MDCCs and Local Government

Units (LGUs) had already used a significant proportion of their assets and funds to respond to the

flooding and the breakout of fighting only complicated an already serious situation. While the

Assessment Team was in the area a fresh wave of fighting caused significant displacement of families

who had only returned to their homes the day before. Once again the IDPs fall into the three categories

already encountered in Lanao del Norte.

Humanitarian Situation: The cumulative effects of this repeated ‘cycle of displacement’ were clear in

the sites that the Assessment Team visited with poor sanitation and waste management leading to an

increase in upper respiratory tract infections, diarrheal cases and measles. Once again the key areas to

address are WASH, Health and Camp management with targeted feeding also required. Outside ECs,

IDPs living with host families had to contend with residual flooding with flood waters receding very

slowly due to silting of drainage points. This in turn made it impossible in many areas for host families to

tend their crops or graze their livestock, making it difficult for them to feed themselves let alone the IDPs

who are living with them. Flooding also compounded sanitation and hygiene problems.

Humanitarian Response and Coordination: Once again humanitarian operations followed the

established national and local model described previously. There was evidence that humanitarian service

providers were beginning to become fatigued but they still maintained services to the highest standard

possible. In the three Provinces visited, management and coordination of response operations was

assessed as good in North Cotobato and fair in Sheriff Kabunsuan and Maguindanao. All DCCs were

using the common assessment forms developed by the Government Cluster Leads, the NDCC and IASC

partners. There was some confusion across the board on the numbers of those affected and displaced with

some authorities counting families and then listing total number of dependants, others counting families

and using a simple multiplication factor to give total numbers and in either case it was not clear to the

team what exactly constituted ‘dependant’. This in turn led to relatively minor discrepancies between

DCCs in the total figures given.

Summary: A well managed response but with some areas of need requiring targeted humanitarian

interventions in support of the local authorities and in coordination with the N/RDCC, particularly in

Sheriff Kabunsuan and Maguindanao. Areas requiring attention are in WASH, Health, Camp

Management, Food Assistance and psychosocial counselling as detailed in the needs by sectors/thematic

area later in this report. Due in part to the previous flooding and in part to the intensity of current military

and MILF operations in Shariff Kabunsuan, Maguindanao and North Cotobato, support to local

authorities should be prioritised to Shariff Kabunsuan and Maguindanao in the first instance and North

Cotobato thereafter..

E. Assessment and �eeds by Sectors/Thematic Areas

1. Health

The local health systems in the four provinces are functional but with initial signs of fatigue among direct

health service providers. The capacity of the local health systems to provide direct services are sustained

through the deployment of hospital personnel to ECs; the reinforcement of personnel from the Centres for

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Health and Development for Region 10 and Region 12 and DOH-ARMM; the presence of local health

volunteers, and; the augmentation of LGU-procured medical supplies, drugs and equipments by the DOH,

ARMM, international and local NGOs, UN agencies, national leaders in congress and neighbouring

LGUs.

To prevent any untoward health effects among IDPs, mass immunization against measles among 6-

months old infants to 59-months old children in almost all the evacuation sites has been conducted,

together with the strengthening of disease surveillance and early referral and management of cases by the

deployment of one midwife per evacuation site in North Cotabato; the establishment of health operations

centres in most ECs; running the RHUs of Datu Piang, Mamasapano and Talayan on 24-hour operations

and improving access to potable water supply and sanitary facilities. The conduct of medical missions to

affected barangays and municipalities by LGUs and other humanitarian partners also contributed in the

clinical management of sick home-based IDPs.

Below is a brief summary of common illnesses seen and managed in evacuation sites and conflict-related

casualties as reported by province.

Table 1: Summary of common illnesses seen and managed in evacuation sites and conflict-related

casualties as reported by province

Province Deaths Injured Common Illnesses seen at EC

1. Lanao del Norte 39, no deaths due to

illness or occurred at

EC

30 Fever, cough, LBM, skin

diseases (cases are referred and

managed in nearby health

facilities)

2. Maguindanao &

Sharif Kabunsuan

13 due to encounter

including 4 children

& pregnant women,

8 died due to illness

broken down as

follows: 5 died at EC

due to pneumonia,

asthma, HPN and MI;

2 died of measles and

1 due to diarrhoea

(home-based IDPs)

14 Common illnesses are URTI,

diarrhoea, fever and skin

diseases. Reported cases of

measles are increasing in

Maguindanao (36 cases) and

Sharif Kabunsuan (14 cases),

79 cases of diarrhoea were

seen of which 51 were

admitted in Datu Piang

RHU. There are 33 recorded

pregnant women at Datu

Piang EC.

3. North Cotabato 4 GSW, 6 cardiac

arrest

8 Diarrhoea, fever, cough, one

case of severe malnutrition

was referred to hospital for

further management, and one

delivery at Upper Abbas EC

Despite the above efforts, latest data provided by regional and provincial partners revealed that there are

increasing cases of diarrhoea and measles, a signal that warrants strategic and comprehensive WASH

interventions in addition to health and targeted nutrition interventions, in order to avert any impending

outbreak of infectious diseases specifically in the provinces of Maguindanao, Sharif Kabunsuan and

North Cotabato. Furthermore, the provision of clinical and preventive interventions is complicated by the

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high mobility of IDPs, limited mobility of health workers because of security concerns, and the lack of

culturally and gender sensitive IEC materials on health, nutrition and WASH.

Recommendations:

1. Support ongoing clinical and preventive interventions through provision of medicines, especially

for children, including de-worming tablets, midwifery kits and EPI supplies;

2. Support the strengthening of maternal and child health care in strategic ECs with large

populations;

3. Conduct culturally sensitive health promotion and education activities with IDPs participation

and provision of IEC materials on health, nutrition and WASH during emergency;

4. To ensure availability of medicines and other medical, surgical and WASH supplies on sites,

stockpiling of essential supplies on health, nutrition and WASH should be explored in close

coordination with humanitarian partners;

2. WASH

Table 1 provides a brief WASH description of ECs visited, which reflects the general WASH situation of

ECs in the four provinces the team visited. The 8 ECs visited do not meet the minimum SPHERE

standards with varying degrees of severity. The ECs in Lanao del Norte, except for the 5-day old EC at

Montay that housed about 144 IDP families from Tangkal and Monai, are relatively clean. The situation

in Datu Piang EC, in Maguindanao, Libungan Toretta and North Cotabato are poor and require immediate

action to prevent any occurrence of disease outbreak among IDPs. When the team was there cases of

diarrhoea and measles were on the increase in Datu Piang. In all the ECs visited, the safety and welfare of

women and girls is not safeguarded due to lack of sanitary facilities specifically for women.

Table 1: WASH Situation of 8 ECs visited in the provinces of Lanao del �orte, Maguindanao and

�orth Cotabato:

Evacuation

Sites

Water

Facilities

Sanitary Facilities &

Waste Management

Hygiene Comment

1. Lanao del Norte (Sept. 4, 2008)

1.Riverside

National High

School (51

families with

176 persons)

Available water

source on site,

water containers

are available but

not enough, no

chlorination.

Two toilets for the evacuees

with another set that is

being used by students and

teachers.

Environment is relatively

clean, garbage is being

burnt on site.

There is a common cooking

area and food is stored in an

open space between EC and

water and sanitary facilities.

Basic hygiene

practices such as

hand washing, use

of footwear and

proper food

storage are not

being practiced.

Overcrowded during

day time (3 rooms at

day time); at night

time additional rooms

are used for sleeping,

cartons and a few mats

are used to protect

IDPs from cement

floors.

2. Kolasihan

Evacuation

Centre (156

families, about

780 persons,

Lanao del Norte)

Available about

300 meters away,

no chlorination,

IDPs have water

containers for

collection &

No CR, surrounding area is

relatively clean and garbage

is being burnt; human

faeces is wrapped in plastic

and is disposed of

indiscriminately at the EC

Basic hygiene

practices are not

being practiced.

Overcrowded, cartons,

mats and plastic

sheeting are used for

sleeping.

9


13 September 2008

storage, but not

sufficient.

periphery.

3.Montay

Evacuation

Centre (144

families, about

1,756

individuals from

Tangkal and

Monai

(Maranao) 5-day

old EC), Lanao

del Norte

No water source,

water collected at

the Mosque about

1.5 km away, water

containers

available but

insufficient, no

chlorination.

No CR , IDPs are using one

CR at the mosque which is

about 1.5 km from the EC

Poor, basic hand

washing not a

common practice.

Mats and cartons are

used for sleeping.

4. Kauswagan

Gym (8 families,

with about 40

people)

No water source

but with water

container, no

chlorination.

No sanitary facilities at the

gym, sanitary facility CR at

the municipal hall nearby

(less than 100 metres). IDPs

especially children and

women are at risk during

night time.

Basic hand

washing not

observed, clean

surroundings.

IDP sleep on very cold

cement floor using

cartons and mats.

2. Maguindanao, September 8, 2008

Datu Piang,

Maguindanao

(est. 3,200

families –

Centre-based)

and 458 home-

based IDPs.

Open park space

with few

building like

local Civil

Registrar office,

fire station.

Only 3 water

sources (deep

well); 2 sources are

located about 500

metres or more to

the camp sites; 1

fire tank positioned

within the site for

washing. Only 1

RSI assisting in the

provision of stock

solution. While

hyposol is

available it is not

being used by the

IDPs, due to lack

of knowledge.

Very inadequate

water containers.

Only two common public

toilets, privacy not

considered, faeces disposed

of in the river at the back of

the EC. Same river is being

utilised as bathing area,

especially by young

children. Poor waste

management.

Very poor ,

stagnant water,

poor drainage,

poor garbage

disposal, flies

observed in the

EC, no common

washing and

cooking facilities,

very poor food

storage,

disorganised

establishment of

tents/makeshift.

There is an increasing

cases of diarrhoea, 51

out of 92 admissions

at the RHUs are

diarrhoea cases.

3. North Cotabato, September 9, 2008

Takepan, Pikit:

about 80 night

IDPs centre-

based and about

200 home-based,

children are in

school while

parents are in the

fields during day

time, EC is used

for sleeping

quarters.

1 water source at

the barangay hall,

inadequate water

container, safety of

IDPs esp. to fetch

water during night

time.

1 public toilet, no gender

segregated facilities,

potential protection risk to

women.

Rubbish is

manageable but

might affect the

health and

nutrition of IDPs

if no additional

measures.

Night IDPs.

Dualing EC,

Aleosan: located

Oxfam supported

the installation of a

No sanitary toilets, BHS

with toilet facility but not

Hygiene practices

poor, garbage is

Houses of the IDPs

were burned during

10


13 September 2008

in an open space

near BHS and

open public

facility catering

to about 112

centre-based

IDP families ,

with additional

92 home-based

IDPs families.

water tank. for the IDPs. manageable. the fighting.

Libungan

Torretta,

Midsayap: 575

families, about

2,875

individuals).

1 Water Bladder

and 1 new water

tank installed by

Oxfam; water

containers

sufficient.

Insufficient latrine facilities

although 2 x bowl latrines

were recently installed.

IDPs use the nearby river as

a toilet, bathing and fishing

area.

Very poor, solid

waste

management is

totally absent,

food storage very

poor, no common

cooking areas.

IDPs are from North

and South Kabuntalan,

Sharif Kabunsuan.

In addition to above observations, due to almost daily afternoon downpours, ECs and houses along the

highway leading to the municipality of Datu Piang are flooded, further reinforcing the poor environmental

situation affecting both IDPs and host communities.

Recommendations:

1. Address WASH gaps to ensure the availability of a minimum safe drinking water supply taking

into account the privacy, dignity and security of women and girls, improvement of safe excreta

and solid waste management, and construction of appropriate sanitary facilities, and;

2. Augment the support provided by partners by the provision of water storage containers, water

purifiers, hygiene kits, non-food item such as family packs including mats, plastic sheaths,

footwear and kitchen utensils.

3. Food

Prior to the onset of the latest violence severe flooding in the aftermath of Tycoon Frank wiped out or

severely affected most of the crops in the areas that the Assessment Team visited, with the exception of

Lanao del Norte, which was spared the flooding. In the immediate aftermath of the flooding farmers had

tried to replant but the onset of the fighting drove many of them off their farms again and what harvest

had been collected was stolen, along with livestock, farm implements and machinery. What was not

taken was often destroyed.

In times of peace the main source of food for IDPs was self production, exchange, trade and purchase.

These sources are now no longer available and even those who still have farm implements, machinery and

the land to work upon, are too frightened to do so for fear of AFP and MILF fighting. With no food

reserves or purchasing power, families are dependent on food aid of rice, noodles and canned goods

which are not enough to meet the required nutritional intake of an individual let alone satisfy their hunger.

Various government, non-government and international organisations are providing and have provided

food interventions to the displaced families on a very limited scale. Some organisations provided food

assistance which ranges from 2 kg–10 kg of rice, 2-3 tins of canned goods and sometimes 2-3 packs of

noodles per family, with a very limited number of families served and no certainty of repeated delivery.

11


13 September 2008

The WFP is providing food aid in the form 25 kg of rice per month per family to all displaced families

both inside evacuation centres and outside, such as those living with host families. Assessed food needs

of IDPs are rice being the main staple, dried fish, sugar, coffee, vegetables/pulses and oil. Basic food

should comprise of carbohydrates, protein and fats; however, coffee and sugar are considered to be very

important in the diet of the Muslim population which comprise the majority of the displaced families.

Recommendations:

1. The provision of food aid to IDPs should continue at both ECs and in the host families as

validated and endorsed by local authorities;

2. The food basket should include but not be limited to rice, oil and pulses;

3. The food aid should be provided for at least two months or until IDPs have returned to their

respective communities;

4. Displaced families who return to their respective communities should be given food aid through

food for work and/or food for training on a case by case basis;

5. Food for work projects should focus on the rehabilitation and/or restoration, of IDPs’ livelihoods

such as irrigation systems, farm plots, farm to market roads and other public facilities such as

schools, health centres and facilities destroyed during the conflict and/or during typhoon Frank;

and

6. Food for training should also be implemented with a focus on enhancement of skills that diversify

IDPs’ potential income sources.

4. Camp Management and Shelter

The attendant activities and focus inherent in managing camps cover cross-cutting concerns towards

ensuring an enjoyment of basic human rights by all segments of the displaced population. For this

assessment mission, the specific interlocking areas of shelter and protection were taken into primary

account. The frame of the camp management, protection, and shelter component of this assessment was

anchored on the specific direction embodied in the Guiding Principles on Internal Displacement and the

Sphere Project Humanitarian Charter, towards setting up and maintaining a site that provides a safe,

secure and dignified place for displaced persons to live in, according to internationally accepted standards

of well being. Further, the camp management responsibility of ensuring the efficient and timely delivery

of services through coordination, identification of gaps, monitoring and by avoiding duplication, provided

the essential stratum for a more grounded analysis of the general complex emergency situation in the

targeted 3 provincial assessment sites.

Evacuation camps in this assessment refer to: (a) schools which are utilized as ECs; and (b) other public

premises provided by the government for temporary evacuation use.

The provincial governments and other humanitarian agencies have mobilised resources to respond to the

current displacement issue, but indications are that IDPs will be living in cyclical displaced situations

with marked mobility patterns within such displacement, perhaps for as long as three months. This

timeframe is speculative, as the situation of population displacement is indelibly linked with the

protracted and current peace process in Mindanao, and for the past few months, has been exacerbated by

weather disturbances and typhoons.

A brief overview of the sites which the Assessment Team visited is below:

a) Lanao del �orte. The vast majority of those still displaced are in ECs in the villages and towns

along the coastal road. In 4 IDP sites that were visited there were:

12


13 September 2008

• 51 families (about 176 individuals) remained in the Cabrera Riverside National School;

• 156 families (about 780 individuals) in the Kolasihan Elementary School;

• 144 families (about 1,756 individuals) in the Szopad Kauswagan (Muntai) premises, and;

• 8 families (about 40 individuals) in the Kauswagan Gym.

These IDPs fall into three broad categories:

• Those people who have lost their homes;

• Those people who live in areas currently affected by fighting who are to frightened to

return, and;

• Those people who are either traumatised by the fighting or live close but not in areas of

conflict who return to their homes during the day but stay in the relative safety of the

evacuation centres at night.

The general situation of these 4 sites was fair. It was evident that some areas of SPHERE standards

were not met, however it was as clear that every effort was made to consider and meet such standards,

where possible. At roughly (at an average of) 17 families per classroom, congestion was amply self-

managed at night-time wherein families and individuals would seek their own empty classrooms in

which to spend the night, outside of the assigned IDP classrooms. Sleeping mats/mattresses and

beddings were clearly insufficient. Likewise bathroom and washing facilities were also insufficient.

Access to potable water was also a concern.

b) �orth Cotabato. 3 sites were visited in North Cotabato:

a) Takipan, Pikit site - holding 80 individuals, with another 200 individuals with host

families within the area. The majority of IDPs at this site were ‘night-time’ IDPs,

working outside the site during the day. The makeshift tents (made of plastic sheeting

held up by cut tree branches) were empty during the visit. This site did not have any

toilet facilities and the only water source was some distance away.

b) Dualing site - holding 112 families, with another 92 families in host households. Water

supply to this site has been supported by Oxfam; however, the only toilet available for

IDP use was the barangay health station toilet.

c) Libungan Toreta site - holding 575 families (about 2,875 individuals). The IDPs bathe,

wash and fish in the Ligwasan Marsh, alongside the site. Unfortunately, the IDPs also

use the marsh for human waste disposal. 1 water bladder was installed for use by the

entire site, by the side of the road, with water pipes only reaching a portion of the

sprawling expanse of land. Makeshift tents, standing as low as 3 feet from the ground,

are made of plastic sheeting, bamboo, and cut tree branches, with dried palm leaves used

as additional protection from the elements.

The general WASH and IDP management situation in the IDP sites requires urgent attention to

prevent the outbreak of disease. As traditional evacuation sites used for IDPs, and considering that

the current fighting may last for some time, there should be serious attempts to improve the

management of these sites.

c) ARRM - Maguindanao. As of 7 September 2008, there were 2,500 IDP families in Datu Piang,

with about 458 IDP families being hosted by families in the community. During the assessment visit,

there were still an unregistered 700+ IDP families who just arrived at the evacuation site. The water

13


13 September 2008

and sanitation situation of Datu Piang was poor with 3 functional pumps of drinking water and only 2

public toilets for IDP use. The immediate area around the toilets was extremely unsanitary. No site

management (and planning oversight) was evident in Datu Piang, with IDPs just setting their

respective temporary plastic sheeting anywhere in the area. It was clear that the makeshift tents did

not provide either shade from the sun or protection from the rain. Mattresses and bedding were

likewise lacking.

Recommendations

1. Internal camp management (and camp coordination) operational guidelines should be

mainstreamed within community-based teams present in areas (or potential areas) of

displacement for troubleshooting, responding to newly emerging scenarios over varied

geographical areas, monitoring and reporting on emerging trends, and providing early warning on

possible political/environmental developments.

5. �utrition

The nutritional status of IDPs, with the exception of North Cotabato, was assessed through observation

due to lack of data. In North Cotabato, latest provincial data revealed that 1,604 and 1,062 children under

five are below normal low (BNL) and below normal very low (BNVL) respectively. The lack of

disaggregated data of the children weighed makes it very difficult to determine the prevalence of

underweight among children among young children. In general, about 4-5 out of 10 IDPs are women of

reproductive age group, with a number of pregnant and lactating women. Also on the average about 2-3

out of 10 are children below 5 years old. Most young women and mothers at the sites are pale, sad and

mentally pre-occupied. While most children are enjoying the attention provided to them, a significant

number look undernourished.

The immediate actions carried out by local health workers were the mass Vitamin A supplementation of

young children, breastfeeding promotion and the establishment of breastfeeding areas. To prevent the

increase of undernourishment and micronutrient deficiency among children and pregnant and lactating

women, appropriate WASH interventions, sustained provision of clinical and preventive health

interventions and the provision of food assistance to pregnant and lactating women is required.

Recommendations:

1. Provide targeted food assistance to pregnant and lactating women;

2. Promotion of breastfeeding and conduct of nutrition education, and;

3. Micronutrient supplementation to address hidden hunger among the vulnerable age groups.

6. Education

The limited availability of other suitable space has meant that many schools have been designated as ECs

and are currently used to host IDPs. In some locations classes continue in one part of the school as IDPs

live in another. In other areas classes have stopped as the schools have filled past their capacity to

manage both the IDPs and classes. Local authorities are making every effort to ensure that children have

access to the education which is their right. In the camps that the Assessment Team visited classes were

being held wherever possible. However, the continued and unavoidable use of schools as IDP centres

will have a negative effect on the education of school children of all ages in the medium to long term.

Recommendations:

14


13 September 2008

1. The IASC Country Team should work in support of the Education Cluster Leads to address the

medium to long term issue of the closure of educational facilities in order to mitigate wherever

possible the impact upon students that this is currently having and will have in the future.

7. Protection

The repeated cycle of displacement and violence is leading to widespread anguish and trauma amongst

the IDPs. Psychosocial interventions are required and IASC partners should investigate support to local

authorities through the provision of counselling services or train the trainer programmes. Due to the ad-

hoc nature of the sites, protection concerns with regards to site planning, camp management, lighting and

ease of access due to lack of fencing were noted. As much of the assessment was based on observation

and only limited interaction, it was not possible to assess other protection issues such as GBV.

Another issue that should be given priority is the impact of the conflict to mental health and psychosocial

well-being. IDPs have started to return to their normal daily routines of farming and fishing and some

children have returned to school. However, a significant number of IDPs who are psychologically

distressed cannot go back, not only out of fear for their safety, but also because they have lost their

belongings and homes which were either destroyed during the fighting or severely damaged during the

flooding which followed Typhoon Frank. These IDPs are in need of community-based psychosocial

support.

Recommendations

1. The IASC Country Team should work in support of the Protection Cluster Leads to support and

strengthen existing protection initiatives within the wider framework of a comprehensive strategy

for linking protection of, and assistance to IDPs, as agreed with national counterparts. In

planning support to the national response the following should be considered:

• Support to vulnerability assessments;

• The coordinated programming of assistance;

• Promotion of protection in the design of assistance programmes;

• Support to community-based protection initiatives;

• Targeted protection initiatives for vulnerable groups, and;

• Promoting protection in the design of return/reintegration or resettlement/integration

programmes.

2. The IASC Country Team should commit resources to the operational monitoring and reporting of

ongoing protection initiatives including grave child rights violations stipulated in Security Council

Resolution 1612.

3. Psychosocial support not only to IDPs but also to local service providers

4. Establishment of child-friendly spaces.

8. Early Recovery

The Assessment Team was very impressed to see early recovery planning well underway in some of the

areas which they visited. From the team’s experience these plans usually focus on the repair or

replacement of critical infrastructure damaged or destroyed in the fighting such as roads, schools, houses

and public facilities. It is very much hoped that they will also focus on livelihood generation more

15


13 September 2008

generally, understanding that the loss not only of crops, but of livestock and farm machinery, will

seriously affect income generation in the region for months to come. In addition, whilst programmes are

available to train those in need for alternate livelihoods there is no market for such labour. The more

basic livelihood programmes and activities focused on ensuring the rehabilitation or restoration of the

food security at the family level are highly desirable. As in all other areas, careful monitoring of IDP

returns and activities will enable local authorities and their partners to establish best practice for targeted

support to returnees during the recovery phase.

Recommendations

1. The IASC Country Team are encouraged to further strengthen and implement new livelihood

generation focused programmes which will give IDPs, who have lost everything else, the

opportunity to be productive and provide for themselves and their dependents.

9. Logistics

Given geographical constraints and other than impeded access to IDP locations due to both the flooding

and the fighting, the team did not note any serious logistical constraints on ongoing local relief

operations. There are however significant constraints on IASC partners who have relatively few staff and

limited equipment within the conflict affected areas of Mindanao. Of particular note was the limited

number of MOSS compliant vehicles. Although vehicles can reach Mindanao from Manila in a relatively

short time, an accurate figure of what IASC partners currently have in the local area would inform

planning.

Recommendations

1. As a part of the IASC Inter Agency Contingency Planning Process, the IASC Country Team

should consider conducting a logistics mapping exercise focusing on assessing the capacities and

limitations of the logistical hubs.

10. Security

Staff Safety and Security: the UN Security Phase for Mindanao is Phase III and the safety and security of

humanitarian aid workers in the conflict affected areas of Mindanao is a cause for concern. Neither the

MILF nor AFP fight on front lines and both are highly mobile which means that fighting can break out

where least expected. Constant contact with all parties to the conflict and local authorities is advised prior

to and when travelling to ensure that staff are not caught up in military or MILF operations. UN agencies,

funds and programmes should follow the advice of their security staff and the applicable minimum

operating security standards (MOSS) noting that in staff safety and security, as in other programme

support areas, there are very limited assets. Limited VHF coverage and intermittent HF and Satellite

Telephone coverage are also a concern. A communications mapping exercise should be conducted to

allow for critical communications issues to be addressed.

Recommendations

1. The safety of IDPs remains a serious concern. The IASC Country Team should carefully monitor

the developing situation and continue to advocate for the protection of civilians and respect by all

parties for the recognised rules of International Humanitarian Law (IHL);

2. As a part of the IASC Inter Agency Contingency Planning Process, the implementation of which

is one of the key recommendations of this report, the IASC Country Team should task their

security staff to work in conjunction with the UNDSS Security Advisor in order to map the

16


13 September 2008

current safety and security infrastructure in place in Mindanao and make recommendations for

the strengthening and augmentation it would require to support a full humanitarian response. It

must be understood by U� agencies, funds and programmes that the current security

infrastructure cannot support the deployment of more than a few staff to Mindanao and still

maintain Minimum Operating Security Standards (MOSS), and;

3. As a part of the IASC Inter Agency Contingency Planning Process, the implementation of which

is one of the key recommendations of this report, the IASC Country Team should task the

relevant body to conduct a communications mapping exercise which should determine

communications coverage and ‘dead spots’ in order to recommend suitable solutions which

would enhance current operations or could support a larger humanitarian response.

11. Coordination

As described elsewhere in this document, the humanitarian response followed established plans with the

Local Government Units (LGUs) and Municipal Disaster Coordinating Councils (MDCCs) managing the

first response with the support, guidance and coordination of the Provincial Disaster Coordinating

Councils (PDCCs). The PDCCs were in turn supported by the Regional Disaster Coordinating Council

RDCC with the entire operation managed at the national level from the National Disaster Coordinating

Council (NDCC). Whilst this structure is functional the Assessment Team received a number of reports

that some humanitarian organisations were not coordinating their activities with the authorities. It is clear

that IASC partners should work within the structures established and coordinate closely with the proper

authorities at all levels. Requests for assistance from local authorities should be routed through the

established cluster system and NDCC to ensure the coordinated provision of assistance and avoid

duplication of effort.

Recommendations

1. The IASC Country Team should continue to work in support of established national and local

disaster management and response structures;

2. The IASC Country Team should publicly recognise and reaffirm the need for all parties to work

within the framework of existing government response structures and mechanisms in order to

ensure the coordinated and effective delivery of assistance, and;

3. The IASC Country Team should ensure that requests for assistance from local authorities are

routed through the established cluster system and NDCC to ensure the coordinated provision of

assistance and avoid duplication of effort.

4. Broad Inter Agency appeals from IASC members, covering various cluster areas, should be

vetted by the IASC before dissemination to donors to avoid presentation of conflicting data by

IASC members, avoid potential duplication of effort, and reinforce the IASC and cluster system

of disaster response coordination.

F. Conclusions and Recommendations

Conclusion

The national response to the humanitarian consequences of the current outbreak of fighting in Mindanao

has, in general, been good. Well coordinated and directed response operations are meeting most of the

humanitarian needs and in the areas that the Assessment Team visited Lanao del Norte and North

Cotobato were particularly strong. However, given the complexity of the situation there are areas in

which the local response requires the support of the IASC Country Team. Targeted humanitarian

interventions in support of local authorities are urgently required in the areas of Camp Management,

WASH, Health – with a particular emphasis on psychosocial support - and Food. These interventions, if

17


13 September 2008

launched promptly, will prevent the existing situation both inside and outside ECs from worsening.

These interventions should be combined with strengthened and expanded development programmes

particularly those with a livelihood generation focus that address issues at the root of the current conflict.

_______________

General Recommendations for IASC CT Consideration

1. Targeted humanitarian assistance interventions by IASC partners in support of local authorities to be

undertaken as soon as possible in the areas of Camp Management, WASH, Health – with a particular

focus on psychosocial support - and Food, as detailed in the tables below;

2. Strengthening of existing development programmes and launch of new development focused

initiatives to tackle the root causes of the conflict to be considered by all IASC partners, and;

3. IASC Inter Agency Contingency Planning for a humanitarian response operation to Mindanao in

support of national and local authorities to be undertaken as soon as possible.

Recommendations by Thematic Area:

HEALTH

# Recommendation Endorsed by IASC

CT

YES �O

1

Support ongoing clinical and preventive interventions through

provision of medicines, especially for children, including de-

worming tablets, midwifery kits and EPI supplies.

2 Support the strengthening of maternal and child health care in

strategic EC with large populations.

3

Conduct culturally sensitive health promotion and education

activities with IDPs participation and provision of IEC materials on

health, nutrition and WASH during emergency.

4

To ensure availability of medicines and other medical, surgical and

WASH supplies on sites, stockpiling of essential supplies on health,

nutrition and WASH should be explored in close coordination with

humanitarian partners.

WASH


CT

YES �O

18


13 September 2008

1

Address WASH gaps to ensure the availability of a minimum safe

drinking water supply taking into account the privacy, dignity and

security of women and girls, improvement of safe excreta and solid

waste management, and construction of appropriate sanitary facilities.

2

Augment the support provided by partners by the provision of water

storage containers, water purifiers, hygiene kits, non-food item such

as family packs such as mats, plastic sheaths, footwear and kitchen

utensils..

FOOD


CT

YES �O

1

The provision of food aid to IDPs should continue at both evacuation

centres and in the host families as validated and endorsed by local

authorities;

2 The food basket should include but not limited to rice, oil and pulses;

3 The food aid should be provided for at least two months or until

IDPs have returned to their respective communities;

4

Displaced families who return to their respective communities

should be given food aid through food for work and or food for

training on a case by case basis;

5

Food for work projects should focus on the rehabilitation, and or

restoration, of IDPs livelihoods such as irrigation systems, farm

plots, farm to market roads and other public facilities such as

schools, health centres and facilities destroyed during the conflict

and or during typhoon frank, and;

6 Food for training should also be implemented with a focus on

enhancement of skills that diversify IDP’s potential income sources.

CAMP MA�AGEME�T A�D SHELTER


CT

YES �O

1

Internal camp management (and camp coordination) operational

guidelines should be mainstreamed within community-based teams

present in areas (or potential areas) of displacement for

troubleshooting, responding to newly emerging scenarios over varied

geographical areas, monitoring and reporting on emerging trends, and

providing early warning on possible political/environmental

developments.

19


13 September 2008

�UTRITIO�


CT

YES �O

1 Provide targeted food assistance to pregnant and lactating women;

2 Promotion of breastfeeding and conduct of nutrition education, and;

3 Micronutrient supplementation to address hidden hunger among the

vulnerable age groups.

EDUCATIO�


CT

YES �O

1

The IASC Country Team should work in support of the Education

Cluster Leads to address the medium to long term issue of the closure

of educational facilities in order to mitigate wherever possible the

impact upon students that this is currently having and will have in the

future.

PROTECTIO�


CT

YES �O

1

The IASC Country Team should work in support of the Protection

Cluster Leads to support and strengthen existing protection initiatives

within the wider framework of a comprehensive strategy for linking

protection of, and assistance to IDPs, as agreed with National

counterparts. In planning support to the national response the

following should be considered:

• Support to vulnerability assessments;

• The coordinated programming of assistance;

• Promotion of protection in the design of assistance programs;

• Support to community based protection initiatives;

• Targeted protection initiatives for vulnerable groups, and;

20


13 September 2008

• Promoting protection in the design of return/reintegration or

resettlement/integration Programmes.

2

The IASC Country Team should commit resources to the operational

monitoring and reporting of ongoing protection initiatives including

grave child rights violations stipulated in Security Council Resolution

1612..

3 Psychosocial support not only to IDPs but also to local service

providers

4 Establishment of child-friendly spaces.

EARLY RECOVERY


CT

YES �O

1

The IASC Country Team are encouraged to further strengthen and

implement new livelihood generation focussed programmes which

will give IDPs, who have lost everything else, the opportunity to be

productive and provide for themselves and their dependents.

LOGISTICS


CT

YES �O

1

As a part of the IASC Inter Agency Contingency Planning Process,

the IASC Country Team should consider conducting a logistics

mapping exercise focusing on assessing the capacities and limitations

of the logistical hubs.

SECURITY


CT

YES �O

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1

The safety of IDPs remains a serious concern. The IASC Country

Team should carefully monitor the developing situation and continue

to advocate for the protection of civilians and respect by all parties

for the recognised rules of International Humanitarian Law (IHL);

2


the implementation of which is one of the key recommendations of

this report, the IASC Country Team should task their security staff to

work in conjunction with the UNDSS Security Advisor in order to

map current the current safety and security infrastructure in place in

Mindanao and make recommendations for the strengthening and

augmentation it would require to support a full humanitarian

response. It must be understood by U' agencies, funds and

programmes that the current security infrastructure cannot support

the deployment of more than a few staff to Mindanao and still

maintain Minimum Operating Security Standards (MOSS), and;

3


the implementation of which is one of the key recommendations of

this report, the IASC Country Team should task the relevant body to

conduct a communications mapping exercise which should determine

communications coverage and ‘dead spots’ in order to recommend

suitable solutions which would enhance current operations or could

support a larger humanitarian response.

COORDI�ATIO�


CT

YES �O

1

The IASC Country Team should continue to work in support of

established national and local disaster management and response

structures;

2

The IASC Country Team should publicly recognise and reaffirm the

need for all parties to work within the framework of existing

government response structures and mechanisms in order to ensure

the coordinated and effective delivery of assistance, and;

3

The IASC Country Team should ensure that requests for assistance

from local authorities are routed through the established cluster

system and NDCC to ensure the coordinated provision of assistance

and avoid duplication of effort.

4

Broad Inter Agency appeals from IASC members, covering various

cluster areas, should be vetted by the IASC before dissemination to

donors to avoid presentation of conflicting data by IASC members,

avoid potential duplication of effort, and reinforce the IASC and

cluster system of disaster response coordination.

22


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E�D

****************************

Annex A: Abbreviations and Acronyms

ARMM Autonomous Region of Muslim Mindanao

ASG Abu Sayaff Group

BDA Bangsamoro Development Authority

CCCH Coordinating Committee on the Cessation of Hostilities

EC Evacuation Centres

GRP Government of the Republic of the Philippines

IASC Inter-Agency Standing Committee

ICRC International Committee of the Red Cross

ID Infantry Division

IDP Internally Displaced Persons

IDMC Internal Displacement Monitoring Centre

IMT International Monitoring Team

IOM International Organization for Migration

IPHO Integrated Provincial Health Office

JI Jemaah Islamiyah

KFR Kidnap for Ransom

MILF Moro Islamic Liberation Front

MNLF Moro National Liberation Front

MOA-AD

MDCC

Memorandum of Agreement on Ancestral Domain

Municipal Disaster Coordinating Council

NDCC

PDCC

National Disaster Coordinating Council

Provincial Disaster Coordinating Council

NPA New People’s Army

OCD Office of Civil Defence

OCHA Office for the Coordination of Humanitarian Affairs

PDCC Provincial Disaster Coordinating Council

PSWDO Provincial Social Welfare and Development Office

RDCC

RHU

Regional Disaster Coordinating Council

Regional Health Unit

SoCCSKSarGen South Cotabato, Cotabato, Sultan Kudarat, Sarangani and General Santos City

SOP Standard Operating Procedure

TRO Temporary Restraining Order

UNDSS United Nations Department of Safety and Security

UNICEF United Nations Children's Fund

WASH Water, Sanitation and Hygiene

WFP World Food Programme

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Annex B Record of Assessment Team Mission Activities

Rapid Needs Assessment Mission

# Time Scheduled Activity Actual Activity if Different Comment

Day 1 - September 4

1

0510H Depart Manila Flt # PR181

2 0650H Arrive in Cagayan De Oro

3 0730H - 1100H Travel to Tubod, Lanao Del Norte (LDN)

4 1100H - 1200H Meeting with Provincial Governor and PDCC

Meeting with LDN provincial administrator Mr. Joselito Quibranza and PSWDO

The provincial administrator and PSWDO give a brief on the current IDP situation in LDN and the status of their intervention.

5 1200H - 1500H Local Assessment - Kolambugan, Kolasihan, Balugohay

Local Assessment at Barangays Kolasihan, Riverside and Muntay in Kolambugan and Barangay Poblacion in Kauswagan, Lanao del Norte.

The team visited the evacuation sites in the municipalities of Kolambugan and Kauswagan in Lanao del Norte. Most of the IDP's already returned to their place of origin but some still remain due to insecurity while some have no houses as it were damaged/burned during the attack.

6 1500H - 1700H Travel to Iligan City

7 1700H Team Meeting to discuss days findings

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8 Evening Work on Preparation of Report Work on Preparation of Report


Day 2, September 5

1 0645H Team Briefing

2 0700H Depart for Kauswagan and Linamon

Travelled to Tubod, Lanao Del Norte to attend the coordination meeting with NGO's.

Met with other NGO's working in Lanao Del Norte and discussed further coordination in humanitarian efforts in the area.

3 1200H - 1430H Depart for Cagayan De Oro Airport

Travelled to Cagayan De Oro City

4 1550H Depart from CDO Flt # PR186

5 1725H Arrive in Manila


Day 3 - September 7

1 1225H Depart for Cotabato Flt # PR187

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2 1415H Arrive in Cotabato

3 1425H Arrive in Cotabato City

4 1530H - 1630H Meeting with 6th ID (Camp Siongko, Awang, DOS)

The team met with 6th Infantry Division Chief of Staff Col. Bernardo and G7 Col. Julieto Ando and discussed the security situation in Central Mindanao.


6 Evening Work on Preparation of Report


Day 4, September 8


2 0800H - 0900H Meeting with MILF

The team met with MILF vice Chairman for Political Affairs Ghadzali Jaafar, Coordinating Committee on the Cessation of Hostilities (CCCH) Chairman Toks Ibrahim and some ground commanders and discussed the stand of the MILF on the scrapping of the MOA-AD and the military offensive against Commanders Kato and Bravo.

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3 0930H - 1030H` Meeting with Shariff Kabunsuan Governor and PDCC

The team met with Shariff Kabunsuan provincial Governor Ibrahim Ibay, PSWDO and provincial staff about the IDP situation of the province and their critical needs.

4 1100H - 1200H Meeting with Maguindanao Governor and PDCC

Site visit in Datu Piang, Maguindanao

The team visited evacuation centres in Datu Piang and discussed with the PSWDO of Maguindanao and municipal officials the current IDP situation and their critical needs.

5 1300H - 1500H Meeting with Maguindanao Governor and PDCC

Meeting with Maguindanao provincial administrator

Met with provincial administrator Norie Unas, PSWDO and IPHO and discussed the current IDP situation in Maguindanao, interventions and the critical needs.

6 1500H - 1700H Depart for Kidapawan City

7 Overnight in Kidapawan City




Day 5, September 9

5


13 September 2008


2 0800H - 0900H Meeting with Governor Sacdalan (North Cotabato) and PDCC

The team met with Governor Jesus Sacdalan, PSWDO, IPHO, Provincial Engineer, Provincial Agriculture Office and other provincial staff and discussed the IDP situation in the area and their critical needs. Most of the IDP's returned to their houses but some remain in evacuation centres (EC) and with their relatives. There are also families who are staying at the EC's during night time due to security reasons.

0900H - 1000H Depart for Pikit

3 1100H - 1400H Visit at Pikit and Midsayap Evacuation Centre

Visit at Pikit Aleosan and Pigcawayan Evacuation Centre

Visited evacuation centres in Barangay Takepan, Pikit; Barangay Dualing in Aleosan and Barangay Libunga Toreta in Pigcawayan.

4 1430H Depart for Cotabato City

5 1600H - 1700H Meeting with ICRC Meeting with NGO's based in Cotabato City

The team met with representatives from Save the Children, Non Violent Peace Force, Bangsamoro Development Authority (BDA), and ACF and shared the initial findings of the mission.


Meeting with ICRC

The team met with the ICRC team based in Cotabato City and shared the initial findings of the mission and shared views on the current IDP situation.

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Day 6, September 10


2 0800H - 0900H Meeting with International Monitoring Team

Met with the IMT members of the led by Dato Pahlawan Amza B. Solaiman and discussed about their view on the current situation and future possibilities.

3 0930H - 1030H Meeting with ARMM Regional Governor

Meeting with ARMM Regional Governor and Regional Disaster Coordinating Council (RDCC)

The team joined the RDCC meeting led by ARMM Solicitor General Cynthia Guiani Sayadi, wherein the Department of Social Welfare and Development, Department of Health and Office of the Civil Defence of ARMM reported the current IDP situation and their critical needs.

4 1100H - 1400H Team Meeting to discuss days findings

5 1500H Depart for Manila

6 1700H Arrive in Manila

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Day 7, September 11

0900H - 1500H Meet to finalise report


Day 8, September 12

0930H Brief Secretary Duque MOH, NDCC and other Key Partners

1400H Brief IASC CT

1530H Brief Donors

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Annex D Assessment Team Members

Team Leader Mr. Sebastian Rhodes Stampa

Regional Office for Asia and the Pacific

OCHA

Health, Nutrition and WASH Dr. Martha Cayad-an

Health Specialist, Maternal & Newborn Care

UNICEF Philippines

Food Mr. Mishael Argonza

Programme Officer

WFP Philippines

Camp Management and Shelter, Ms. Ida Mae Fernandez

Regional Programme Officer

IOM Mission with Regional Functions – Manila

Communications and Security issues Mr. Bonnie Singayao

Security Assistant

WFP Philippines

WASH and Health Ms. Regina Paypa

Public Health Team Leader Cotobato

Oxfam GB

Protection, Educations, Early Recovery, Logistics and Coordination were areas covered in collaboration

with all of the team members.

Microsoft Word Minadanao I A S C Initial Needs Assessemnt Report

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