Microsoft Word Minadanao I A S C Initial Needs Assessemnt Report

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

1
Report of the IASC Country Team in the Philippines on the Rapid Initial Needs Assessment in Mindanao
13 September 2008

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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13 September 2008

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.
3
13 September 2008

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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13 September 2008

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 102nd Base Command under Commander ‘Bravo’ and the 105th 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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13 September 2008

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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13 September 2008

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 30 Fever, cough, LBM, skin
illness or occurred at diseases (cases are referred and
EC managed in nearby health
facilities)
2. Maguindanao & 13 due to encounter 14 Common illnesses are URTI,
Sharif Kabunsuan including 4 children diarrhoea, fever and skin
& pregnant women, diseases. Reported cases of
8 died due to illness measles are increasing in
broken down as Maguindanao (36 cases) and
follows: 5 died at EC Sharif Kabunsuan (14 cases),
due to pneumonia, 79 cases of diarrhoea were
asthma, HPN and MI; seen of which 51 were
2 died of measles and admitted in Datu Piang
1 due to diarrhoea RHU. There are 33 recorded
(home-based IDPs) pregnant women at Datu
Piang EC.
3. North Cotabato 4 GSW, 6 cardiac 8 Diarrhoea, fever, cough, one
arrest 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 Water Sanitary Facilities & Hygiene Comment
Sites Facilities Waste Management
1. Lanao del Norte (Sept. 4, 2008)
1.Riverside Available water Two toilets for the evacuees Basic hygiene Overcrowded during
National High source on site, with another set that is practices such as day time (3 rooms at
School (51 water containers being used by students and hand washing, use day time); at night
families with are available but teachers. of footwear and time additional rooms
176 persons) not enough, no proper food are used for sleeping,
chlorination. Environment is relatively storage are not cartons and a few mats
clean, garbage is being being practiced. are used to protect
burnt on site. IDPs from cement
floors.
There is a common cooking
area and food is stored in an
open space between EC and
water and sanitary facilities.
2. Kolasihan Available about No CR, surrounding area is Basic hygiene Overcrowded, cartons,
Evacuation 300 meters away, relatively clean and garbage practices are not mats and plastic
Centre (156 no chlorination, is being burnt; human being practiced. sheeting are used for
families, about IDPs have water faeces is wrapped in plastic sleeping.
780 persons, containers for and is disposed of
Lanao del Norte) collection & indiscriminately at the EC
8
13 September 2008

storage, but not periphery.
sufficient.
3.Montay No water source, No CR , IDPs are using one Poor, basic hand Mats and cartons are
Evacuation water collected at CR at the mosque which is washing not a used for sleeping.
Centre (144 the Mosque about about 1.5 km from the EC common practice.
families, about 1.5 km away, water
1,756 containers
individuals from available but
Tangkal and insufficient, no
Monai chlorination.
(Maranao) 5-day
old EC), Lanao
del Norte
4. Kauswagan No water source No sanitary facilities at the Basic hand IDP sleep on very cold
Gym (8 families, but with water gym, sanitary facility CR at washing not cement floor using
with about 40 container, no the municipal hall nearby observed, clean cartons and mats.
people) chlorination. (less than 100 metres). IDPs surroundings.
especially children and
women are at risk during
night time.
2. Maguindanao, September 8, 2008
Datu Piang, Only 3 water Only two common public Very poor , There is an increasing
Maguindanao sources (deep toilets, privacy not stagnant water, cases of diarrhoea, 51
(est. 3,200 well); 2 sources are considered, faeces disposed poor drainage, out of 92 admissions
families – located about 500 of in the river at the back of poor garbage at the RHUs are
Centre-based) metres or more to the EC. Same river is being disposal, flies diarrhoea cases.
and 458 home- the camp sites; 1 utilised as bathing area, observed in the
based IDPs. fire tank positioned especially by young EC, no common
Open park space within the site for children. Poor waste washing and
with few washing. Only 1 management. cooking facilities,
building like RSI assisting in the very poor food
local Civil provision of stock storage,
Registrar office, solution. While disorganised
fire station. hyposol is establishment of
available it is not tents/makeshift.
being used by the
IDPs, due to lack
of knowledge.
Very inadequate
water containers.
3. North Cotabato, September 9, 2008
Takepan, Pikit: 1 water source at 1 public toilet, no gender Rubbish is Night IDPs.
about 80 night the barangay hall, segregated facilities, manageable but
IDPs centre- inadequate water potential protection risk to might affect the
based and about container, safety of women. health and
200 home-based, IDPs esp. to fetch nutrition of IDPs
children are in water during night if no additional
school while time. measures.
parents are in the
fields during day
time, EC is used
for sleeping
quarters.
Dualing EC, Oxfam supported No sanitary toilets, BHS Hygiene practices Houses of the IDPs
Aleosan: located the installation of a with toilet facility but not poor, garbage is were burned during

9
13 September 2008

in an open space water tank. for the IDPs. manageable. the fighting.
near BHS and
open public
facility catering
to about 112
centre-based
IDP families ,
with additional
92 home-based
IDPs families.
Libungan 1 Water Bladder Insufficient latrine facilities Very poor, solid IDPs are from North
Torretta, and 1 new water although 2 x bowl latrines waste and South Kabuntalan,
Midsayap: 575 tank installed by were recently installed. management is Sharif Kabunsuan.
families, about Oxfam; water IDPs use the nearby river as totally absent,
2,875 containers a toilet, bathing and fishing food storage very
individuals). sufficient. area. poor, no common
cooking areas.

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.

10
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:

11
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

12
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:

13
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

14
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
15
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
16
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
Endorsed by IASC
# Recommendation
CT
YES O
Support ongoing clinical and preventive interventions through
1 provision of medicines, especially for children, including de-
worming tablets, midwifery kits and EPI supplies.
Support the strengthening of maternal and child health care in
2
strategic EC with large populations.
Conduct culturally sensitive health promotion and education
3 activities with IDPs participation and provision of IEC materials on
health, nutrition and WASH during emergency.
To ensure availability of medicines and other medical, surgical and
WASH supplies on sites, stockpiling of essential supplies on health,
4
nutrition and WASH should be explored in close coordination with
humanitarian partners.

WASH
Endorsed by IASC
# Recommendation
CT
YES O
17
13 September 2008

Address WASH gaps to ensure the availability of a minimum safe
drinking water supply taking into account the privacy, dignity and
1
security of women and girls, improvement of safe excreta and solid
waste management, and construction of appropriate sanitary facilities.
Augment the support provided by partners by the provision of water
storage containers, water purifiers, hygiene kits, non-food item such
2
as family packs such as mats, plastic sheaths, footwear and kitchen
utensils..

FOOD
Endorsed by IASC
# Recommendation
CT
YES O
The provision of food aid to IDPs should continue at both evacuation
1 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;
The food aid should be provided for at least two months or until
3
IDPs have returned to their respective communities;
Displaced families who return to their respective communities
4 should be given food aid through food for work and or food for
training on a case by case basis;
Food for work projects should focus on the rehabilitation, and or
restoration, of IDPs livelihoods such as irrigation systems, farm
5 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;
Food for training should also be implemented with a focus on
6
enhancement of skills that diversify IDP’s potential income sources.

CAMP MA AGEME T A D SHELTER
Endorsed by IASC
# Recommendation
CT
YES O
Internal camp management (and camp coordination) operational
guidelines should be mainstreamed within community-based teams
present in areas (or potential areas) of displacement for
1 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.

18
13 September 2008

UTRITIO
Endorsed by IASC
# Recommendation
CT
YES O
1 Provide targeted food assistance to pregnant and lactating women;
Promotion of breastfeeding and conduct of nutrition education, and;
2
Micronutrient supplementation to address hidden hunger among the
3
vulnerable age groups.

EDUCATIO
Endorsed by IASC
# Recommendation
CT
YES O
The IASC Country Team should work in support of the Education
Cluster Leads to address the medium to long term issue of the closure
1 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
Endorsed by IASC
# Recommendation
CT
YES O
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:
1
• 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;
19
13 September 2008

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

The IASC Country Team should commit resources to the operational
monitoring and reporting of ongoing protection initiatives including
2
grave child rights violations stipulated in Security Council Resolution
1612..
Psychosocial support not only to IDPs but also to local service
3
providers
4 Establishment of child-friendly spaces.

EARLY RECOVERY
Endorsed by IASC
# Recommendation
CT
YES O
The IASC Country Team are encouraged to further strengthen and
implement new livelihood generation focussed programmes which
1 will give IDPs, who have lost everything else, the opportunity to be
productive and provide for themselves and their dependents.

LOGISTICS
Endorsed by IASC
# Recommendation
CT
YES O
As a part of the IASC Inter Agency Contingency Planning Process,
the IASC Country Team should consider conducting a logistics
1 mapping exercise focusing on assessing the capacities and limitations
of the logistical hubs.

SECURITY
Endorsed by IASC
# Recommendation
CT
YES O

20
13 September 2008

The safety of IDPs remains a serious concern. The IASC Country
Team should carefully monitor the developing situation and continue
1 to advocate for the protection of civilians and respect by all parties
for the recognised rules of International Humanitarian Law (IHL);

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
2
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;

the implementation of which is one of the key recommendations of
this report, the IASC Country Team should task the relevant body to
3 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
Endorsed by IASC
# Recommendation
CT
YES O
The IASC Country Team should continue to work in support of
1 established national and local disaster management and response
structures;
The IASC Country Team should publicly recognise and reaffirm the
need for all parties to work within the framework of existing
2 government response structures and mechanisms in order to ensure
the coordinated and effective delivery of assistance, and;
The IASC Country Team should ensure that requests for assistance
from local authorities are routed through the established cluster
3 system and NDCC to ensure the coordinated provision of assistance
and avoid duplication of effort.
Broad Inter Agency appeals from IASC members, covering various
cluster areas, should be vetted by the IASC before dissemination to
4 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.

21
13 September 2008

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 Memorandum of Agreement on Ancestral Domain
MDCC Municipal Disaster Coordinating Council
NDCC National Disaster Coordinating Council
PDCC 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 Regional Disaster Coordinating Council
RHU 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

22
13 September 2008

Annex B Record of Assessment Team Mission Activities

Rapid Needs Assessment Mission

# Time Scheduled Activity Actual Activity if Different Comment

Day 1 - September 4

0510H Depart Manila Flt # PR181
1

2 0650H Arrive in Cagayan De Oro

Travel to Tubod, Lanao Del Norte
3 0730H - 1100H
(LDN)
The provincial administrator and
Meeting with LDN provincial
Meeting with Provincial Governor PSWDO give a brief on the current IDP
4 1100H - 1200H administrator Mr. Joselito Quibranza and
and PDCC situation in LDN and the status of their
PSWDO
intervention.
The team visited the evacuation sites in
the municipalities of Kolambugan and
Local Assessment at Barangays Kauswagan in Lanao del Norte. Most of
Local Assessment - Kolambugan, Kolasihan, Riverside and Muntay in the IDP's already returned to their place
5 1200H - 1500H
Kolasihan, Balugohay Kolambugan and Barangay Poblacion in of origin but some still remain due to
Kauswagan, Lanao del Norte. insecurity while some have no houses
as it were damaged/burned during the
attack.

6 1500H - 1700H Travel to Iligan City

Team Meeting to discuss days
7 1700H
findings

1
13 September 2008

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


Day 2, September 5

1 0645H Team Briefing

Met with other NGO's working in Lanao
Travelled to Tubod, Lanao Del Norte to
Depart for Kauswagan and Del Norte and discussed further
2 0700H attend the coordination meeting with
Linamon coordination in humanitarian efforts in
NGO's.
the area.

Depart for Cagayan De Oro
3 1200H - 1430H Travelled to Cagayan De Oro City
Airport

4 1550H Depart from CDO Flt # PR186

5 1725H Arrive in Manila


Day 3 - September 7

1 1225H Depart for Cotabato Flt # PR187

2
13 September 2008

2 1415H Arrive in Cotabato

3 1425H Arrive in Cotabato City

The team met with 6th Infantry Division
Meeting with 6th ID (Camp Chief of Staff Col. Bernardo and G7
4 1530H - 1630H
Siongko, Awang, DOS) Col. Julieto Ando and discussed the
security situation in Central Mindanao.

Team Meeting to discuss days
5 1700H
findings

6 Evening Work on Preparation of Report


Day 4, September 8

1 0700H Team Briefing

The team met with MILF vice Chairman
for Political Affairs Ghadzali Jaafar,
Coordinating Committee on the
Cessation of Hostilities (CCCH)
2 0800H - 0900H Meeting with MILF 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.

3
13 September 2008

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