PROFILE OF INTERNAL DISPLACEMENT : PHILIPPINES

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1 PROFILE OF INTERNAL DISPLACEMENT : PHILIPPINES Compilation of the information available in the Global IDP Database of the Norwegian Refugee Council (as of 27 March, 2001) Also available at Users of this document are welcome to credit the Global IDP Database for the collection of information. The opinions expressed here are those of the sources and are not necessarily shared by the Global IDP Project or NRC Norwegian Refugee Council/Global IDP Project Chemin Moïse Duboule, Geneva - Switzerland Tel: Fax: idpsurvey@nrc.ch

2 CONTENTS CONTENTS 1 PROFILE SUMMARY 5 CAUSES AND BACKGROUND OF DISPLACEMENT 8 DISPLACEMENT IN THE PHILIPPINES 8 CONTINUED DISPLACEMENT AFTER AQUINO ACCEDED TO POWER IN UPDATE ON THE LATEST DISPLACEMENTS IN THE PHILIPPINES (FEBRUARY 2001) 9 CONFLICT IN MINDANAO 10 GOVERMENT AND MILF COMPETE OVER MINDANAO'S NATURAL RESOURCES 10 CONFLICT AND DISPLACEMENT IN MINDANAO ( ) 12 THE WARRING PARTIES 13 CONFLICT AND DISPLACEMENT CONTINUED DURING DISPLACEMENT IN THE WAKE OF ESCALATED FIGHTING BETWEEN MILF AND GOVERNMENT FORCES IN MINDANAO (FEBRUARY 2001) 17 PEACE EFFORTS (MARCH 2001) 21 FORCED DISPLACEMENT DUE TO THE IMPLEMENTATION OF GOVERNMENT OR PRIVATE CONSTRUCTION PROJECTS 24 30,000 INDIGENOUS PEOPLES IN BENGUET PROVINCE TO BE DISPLACED BY DAM PROJECT (DECEMBER 2000) 24 DISPLACEMENT LINKED TO IMPLEMENTATION OF GOVERNMENT MODERNIZATION PLAN ( ) 25 DISPLACEMENT CAUSED BY NATURAL DISASTERS 27 OVER 700,000 PERSONS DISPLACED BY NATURAL DISASTERS BETWEEN SEPTEMBER 1998 AND APRIL 2000) 27 POPULATION PROFILE AND FIGURES 28 GENERAL 28 SELECTED MINDANAO STATISTICS 28 TOTAL NUMBER OF IDPS 28 TOTAL NUMBER OF IDPS (MARCH 2001) 28 NUMBER OF IDPS OVER THE LAST 3 YEARS 31 GEOGRAPHICAL DISTRIBUTION AND DISAGGREGATED FIGURES 32 SUMMARY OF NUMBER OF EVACUEES BY GEOGRAPHICAL LOCATION (MARCH 2001) 32 DETAILS ON THE DISPLACED IN THE EVACUATION CENTERS (JANUARY 2001) 33 TOTAL NUMBER OF EVACUATION CENTERS AND GEOGRAPHICAL DISTRIBUTION OF IDPS IN MINDANAO (MARCH - JUNE 2000) 36

3 POPULATION OF THE 15 EVACUATION CENTERS OF ILIGAN CITY BY PLACE OF ORIGIN (MARCH 2000) 38 RETURN & RESETTLEMENT FIGURES 40 TOTAL NUMBER OF PERSONS/FAMILIES WHO HAVE RETURNED (MARCH 2001) 40 VULNERABLE GROUPS 41 MILF AND NDF ACCUSED OF RECRUITING CHILDREN (JANUARY 2001) 41 30,000 CHILDREN DISPLACED BY ARMED CONFLICT EVERY YEAR SINCE 1988 (1998) 42 PATTERNS OF DISPLACEMENT 44 GENERAL 44 IDPS SEEK REFUGE IN PUBLIC BUILDINGS, CHURCHES AND MOSQUES (JUNE 2000) 44 PHYSICAL SECURITY & FREEDOM OF MOVEMENT 45 PERSONAL SECURITY 45 ARMY SHELLS HIT EVACUEES IN JOLO (NOVEMBER 2000) 45 DISPLACED FAMILIES FEAR BEING CAUGHT IN THE CROSSFIRE (1999) 45 FREEDOM OF MOVEMENT 45 ACCESS TO THE EVACUATION CENTERS RENDERED DIFFICULT BY THE MILITARY (MAY 2000) 45 SUBSISTENCE NEEDS (HEALTH NUTRITION AND SHELTER) 47 GENERAL 47 HIGH NUMBER OF CHILDREN DIE IN EVACUATION CENTERS BECAUSE OF INADEQUATE CONDITIONS (FEBRUARY 2001) 47 PRIORITIES REGARDING ODA ASSISTANCE FOR HUMANITARIAN RELIEF AND REHABILITATION (NOVEMBER 2000) 47 DISPLACED ARE LIVING UNDER DIFFICULT CONDITIONS ( ) 48 HEALTH 48 THE TOP TEN LEADING ILLNESSES/DISEASES IN EVACUATION CENTERS (DECEMBER 2000) 48 POOR HEALTH OF IDPS IN EVACUATION CENTERS (NOVEMBER 2000) 49 MINDANAO IS ONE OF THE AREAS MOST POORLY SERVED BY PUBLIC HEALTH FACILITIES (1997)50 NUTRITION 51 DISPLACEMENT HAS NOT HAD SIGNIFICANT NEGATIVE IMPACT ON THE NUTRITIONAL STATUS OF THE DISPLACED POPULATION (NOVEMBER 2000) 51 NUTRITIONAL STATUS IN CENTRAL MINDANAO BELOW NATIONAL AVERAGE (NOVEMBER 2000) 53 CONFLICT HAS SEVERELY IMBALANCED THE AGRICULTURE GROWTH IN MINDANAO (NOVEMBER 2000) 54 ACCESS TO EDUCATION 55 GENERAL 55 AROUND ONE IN THREE CHILDREN WHO ENTER PRIMARY SCHOOL DO NOT COMPLETE IT (1997) 55 FIGHTING DISRUPT EDUCATION FOR IDP CHILDREN 55 SCHOOLS DESTROYED BY FIGHTING OR USED AS EVACUATION CENTERS (JANUARY 2001) 55 2

4 CHILDREN UNABLE TO ATTEND SCHOOL IN JUNE (MAY 2000) 57 ISSUES OF SELF-RELIANCE AND PUBLIC PARTICIPATION 59 OPPORTUNITIES FOR EMPLOYEMENT AND OTHER ECONOMIC ACTIVITIES 59 FOOD AND LIVELIHOOD STRATEGIES SEVERELY DAMAGED DURING/AFTER DISPLACEMENT 59 DOCUMENTATION NEEDS AND CITIZENSHIP 61 GENERAL 61 GOVERNMENT WILL NOT INTRODUCE SPECIAL REGISTRATION FOR MUSLIMS (2000) 61 PROPERTY ISSUES 62 GENERAL 62 OVER 6,000 HOUSES DAMAGED DURING THE FIGHTING IN MINDANAO (JANUARY 2001) HOUSES DESTROYED BY THE FIGHTING IN COTABATO (NOVEMBER 2000) 62 PENDING HOUSE BILL TO ALLEVIATE PLIGHT OF DISPLACED FAMILIES (1999) 63 PATTERNS OF RETURN AND RESETTLEMENT 64 GENERAL 64 LITTLE RETURN DUE TO FEAR OF FIGHTING (JANUARY 2001) 64 MOST IDPS RETURN WITHOUT GOVERNMENT SUPPORT (JUNE 2000) 65 IDPS RETURN ONLY UNDER SAFE CONDITIONS (JUNE 2000) 65 GOVERNMENT PLANS FOR RETURN AND RESETTLEMENT 66 GOVERNMENT WILL CONSTRUCT HALFWAY HOUSES TO SERVE AS TEMPORARY SHELTER TO MINDANAO RESIDENTS UNTIL THEIR OWN HOMES ARE REBUILT. (OCTOBER 2000) 66 NGO PLANS FOR RETUN AND RESETTLEMENT 67 THE TABANG MINDANAW INTEGRATED RETURN AND REHABILITATION PROGRAM (IRRP) FOR THE CIVILIAN WAR VICTIMS IN MINDANAO (SEPTEMBER 2000) 67 HUMANITARIAN ACCESS 70 ACCESS TO THE WAR ZONES 70 MOVEMENTS OF GOVERNMENT, UN AND NGO STAFF CONTINUE TO BE CONSTRAINED BY SECURITY CONDITIONS (NOVEMBER 2000) 70 FOOD FOR THE TRAPPED CIVILIANS BLOCKED BY THE MILITARY BY FEAR OF IT BEING USED BY THE MILF (MAY 2000) 70 MILF COMMITS TO HELP HEALTH WORKERS ACCESS WAR ZONES (APRIL 2000) 71 NATIONAL AND INTERNATIONAL RESPONSES 73 NATIONAL RESPONSE TO NATURAL DISASTERS 73 THE INSTITUTIONAL FRAMEWORK FOR DISASTER MANAGEMENT, THE NATIONAL DISASTER COORDINATING COUNCIL (1999) 73 3

5 NATIONAL RESPONSE TO INTERNAL DISPLACEMENT 74 GOVERNMENT RELIEF & REHABILITATION ACTIVITIES (MARCH 2001) 74 BALAY PROVIDES PSYCHO-SOCIAL SERVICES TO IDPS (DECEMBER 2000) 76 MNLF INVOLVED IN RELIEF & REHABILITATION IN SULU PROVINCE (OCTOBER 2000) 76 MINDANAO COORDINATING COUNCIL (MCC) PLACES UNDER THE PRESIDENT ALL AGENCIES AND BODIES CHARGED WITH RELIEF AND REHABILITATION (AUGUST 2000) 77 RELIEF EFFORTS COORDINATED BY THE NATIONAL DISASTER COORDINATING COUNCIL (JUNE 2000) 78 PHILIPPINE NATIONAL RED CROSS (PNRC) INVOLVED IN THE RELIEF OF IDPS (JUNE 2000) 79 GOVERNMENT OFFERS MEDICAL AND PSYCHO-SOCIAL SERVICES TO IDPS (APRIL-MAY 2000) 80 SENATE PRESIDENT PROPOSES TO CREATE A VOLUNTEER PEACE CORPS FOR MINDANAO (APRIL 2000) 81 ILIGAN CITY'S RESPONSE TO THE IDP INFLUX (APRIL 2000) 81 GROUP OF NGOS ORGANIZE A DISASTER RESPONSE TEAM (FEBRUARY 2000) 83 INTERNATIONAL RESPONSE TO INTERNAL DISPLACEMENT 84 JAPAN EXTENDS ASSISTANCE TO MINDANAO'S EVACUEES (DECEMBER 2000) 84 UNITED NATIONS RESPONSE TO INTERNAL DISPLACEMENT (NOVEMBER 2000) 84 ICRC'S ACTIVITIES IN MINDANAO (JUNE 2000) 86 FAO'S ACTIVITIES IN MINDANAO (JUNE 2000) 86 OXFAM'S ACTIVITIES FOR DISPLACED PERSONS (1999) 86 UNDP SUPPORTS REINTEGRATION OF THE INTERNALLY DISPLACED IN MINDANAO (1997) 87 GAPS IN THE NATIONAL RESPONSE 87 NGO CLAIMS EVACUEES ARE NEGLECTED BY GOVERNMENT (DECEMBER 2000) 87 CONFUSION AMONG AGENCIES AS TO WHO IS ASSIGNED RESPONSIBILITY FOR DISTRIBUTING FOOD ASSISTANCE (NOVEMBER 2000) 88 NATIONAL COORDINATING SUPERBODIES SET UP WITHOUT CONSULTING WITH THE MINDANAO PEOPLE (SEPTEMBER 2000) 89 LACK OF COORDINATION IN RELIEF AID CAUSES PROBLEMS (JUNE 2000) 89 NGO SAYS DISPLACED FAMILIES ARE LEFT ON THEIR OWN WITHOUT SIGNIFICANT SUPPORT ( ) 90 GOVERNMENT PREVENTS UN SPECIAL REPRESENTATIVE ON IDPS TO ATTEND WORKSHOP IN MANILA (NOVEMBER 1999) 91 ABBREVIATIONS AND ACRONYMS 92 LIST OF SOURCES USED 93 4

6 PROFILE SUMMARY The main cause for displacement in the Philippines today is the conflict between the government and the Moro Islamic Liberation Front (MILF), a Muslim insurgent group that strives for self-determination on the southern island of Mindanao. Last year witnessed large-scale displacement following intense fighting between the MILF and the Armed Forces. Fighting started in Maguindanao in March and rapidly spilled over to other regions of Mindanao. By August an estimated 730,000 persons had been forced to flee their villages to seek refuge in 395 evacuation centers or with friends and relatives (UN Resident Coordinator, 7 August 2000). In September fighting also took place in Sulu province between the Philippine Armed Forces and the Abu Sawyaf rebel group displacing an additional 44,000 persons (PDI 26 September 2000). It has now been a year since the conflict started and although skirmishes in the beginning of 2001 continued to cause further displacement, the situation seems to have improved somewhat. President Arroyo declared a unilateral ceasefire mid-february and the MILF formally accepted the resumption of peace talks a month later (MB 15 Mars 2001). The latest figures provided by the Government and confirmed by local or international NGOs indicate that as of March ,000 IDPs are still sheltered in 160 evacuation centers with over 80% of them located in North Cotabato and Maguindanao provinces (DSWD 1 March 2001). An additional 51,000 IDPs are displaced outside evacuation centers staying with friends and relatives (CFSI 6 March 2001). In 1996, an agreement between the Government and the main Muslim insurgent group the Moro National Liberation Front (MNLF)- was signed, providing for a ceasefire and for the creation of a priority development zone within the Autonomous Region for Muslim Mindanao (ARMM), comprising four provinces with a predominantly Muslim population. There were huge hopes at that time that this agreement would put an end to the military activities of the Muslims groups, but four years later these hopes have receded. The economy remains depressed, mainly because most of the programs agreed upon have not been implemented by Manila, money has disappeared into the hands of local leaders and the international community has been reluctant to invest significantly in the region. In frustration more and more militants left the MNLF to join the more radical MILF (Le Monde, 25 May 2000). The MILF did not support the 1996 agreement but committed itself not to stand in the way of peace. In 1997 it signed an agreement with the government on the general cessation of hostilities, but since then the ceasefire has been violated several times and shaky peace talks and clashes, followed by significant displacement have continued with an alarming regularity. The displaced are predominantly peasants and villagers. They have sought refuge in the main cities of their region or neighboring villages where they have been sheltered in schoolrooms, mosques, chapels or other public buildings. A survey conducted by Oxfam GB in November 2000 among IDPs in evacuation centers in Maguindanao, North 5

7 Cotabato and Sultan Kudrat provinces showed that the majority (76 %) had been displaced for more than 5 months and that most of them (85%) were Muslim. Moreover, 30 % of the displaced were children under 5 years (Oxfam November 2000) Access to the evacuation centers has sometimes been difficult for the displaced. It has been reported that government soldiers have sometimes delayed the displaceds' entry into the evacuation centers by setting up roadblocks to search their belongings, but also by raising the road tolls. (TFDP, 26 May). Fighting near the evacuation centers have occasionally caused IDPs to be exposed to shelling. (PDI 3 November 2000) The Government relief agency workers have been confronted with difficulties in bringing the food and other relief items to the displaced trapped by the fighting. Soldiers have again been accused of delaying the delivery of the goods by checking the rice bags for guns and ammunitions and harassing the relief workers. (Human Rights Now, 9 May 2000). Prior to the renewed fighting that started at the end of April, the MILF had committed to allow health workers access the rebel territories, where it is estimated that four out of ten children suffer from moderate to severe malnutrition (Health Alert, 15 April 2000). The Government estimates that as of March 2001 over 80% (592,610) of the displaced have returned to their place of origin or have been resettled to a place of their choice (DSWD 1 March 2001). As mentioned above, this leaves a total of 196,000 persons still sheltered in evacuation centers or staying with friends and relatives. Periodic skirmishes have prevented their return and sometimes provoked renewed displacement. The Government's strategy is to construct temporary "halfway" evacuation centers situated nearer the place of origin of the displaced so as to encourage them to use these sites as a base from which they can proceed to their farms on a more regular basis and as a platform for early return. (UN Resident Coordinator 5 October 2000) The Philippine Government has not issued any international appeal and has rejected several offers from donors to provide direct aid, preferring the resources to be channeled through its governmental institutions (UN Resident Coordinator 6 June 2000). It has responded to the displacement mainly through the National Disaster Coordinating Council (NDCC), which coordinates the actions of the Department of Social Welfare and Development (DSWD), The Office of Civil Defense (OCD), the Philippine National Red Cross (PNRD) and the local Governments. The scale of displacement has reportedly resulted in relief problems beyond the capacity of these national institutions. (UN Resident Coordinator 8 May 2000). In order to strengthen the coordination and the rehabilitation efforts, the Government established on July 5th the Mindanao Coordinating Council (MCC) and within it the Presidential Task Force for Relief and Rehabilitation, placing under the President all agencies and bodies charged with relief and rehabilitation (UN Resident Coordinator 7 August 2000). Field-based NGOs as well as Catholic and Muslims organizations have also been bringing relief to the displaced. 6

8 The UN, in collaboration with the National Economic and Development authority and the Southern Philippines Council for Peace and Development, provides food and medicine to local governments and to the DSWD (UN Resident Coordinator 6 June 2000). Furthermore, in view of the post-conflict rehabilitation phase, UN agencies have agreed to support the affected communities under a joint programme modality directly involving UNDP, UNICEF, UNFPA, ILO, FAO, UNESCO and UNHCR (UN Resident Coordinator 24 November 2000). (19 March 2001) 7

9 CAUSES AND BACKGROUND OF DISPLACEMENT Displacement in the Philippines Continued displacement after Aquino acceded to power in 1986 Increased displacement in 1997 due to armed clashes and construction projects. Displaced by conflict between Government and NPA prior to 1990 are still uprooted. Recent displacement is due to conflict on Mindanao between Government and Muslim insurgents. "Internal displacement of families dates back to Spanish colonial times when thousands of Filipino families fled their homes in fear of their lives. This persisted during the American and Japanese occupation of the late nineteenth century and early twentieth century and continued during Marcos era. Between 1972 and 1984, during the height of the Marcos dictatorship, one million families were displaced by armed clashes between the military and the rebels. The Philippines are predominantly Catholic, and it was reported that in ,000 Muslims were forced off their land. ( ) After the people's revolt in February 1986, which toppled the Marcos administration, the Filipino people hoped that President Corazon C. Aquino would bring them peace. However, less than a year later the Aquino administration openly declared war against the insurgents and military operations were intensified. School buildings and churches were filled again with fleeing families. During the height of Aquino's "total war policy", more than a million Filipinos were displaced. In Mindanao, there was increased fighting between Moro rebel groups and government forces with armed clashes. The government's medium-term development plan is also causing a rise in the number of internally displaced people and homeless families. Between January and December 1997, there were 550 recorded incidents of displacement, not counting those caused by natural disasters: 31,564 families or 189,000 people throughout the country were displaced by counterinsurgency operations or by the demolition of urban shanties for the construction of government development projects. This was a 51 percent rise over the 1996 figure. Most of the families whose homes were demolished and who also lost their jobs or livelihood, came from Mindanao. However, there may be other IDPs who have not been counted because of the lack of access to certain areas, particularly in the interior." (Medina-Salgado, C.T., 1998, pp ) "During the 1980s, conflicts between the Armed Forces of the Philippines (AFP) and the New People s Army (NPA), an insurgent group associated with the Communist Party of 8

10 the Philippines, displaced thousands of civilians. The conflict largely ended in the early 1990s, but many people remained displaced in Manila and other urban centers, often subsisting in what have become semi-permanent slums. In recent years, most displacement has resulted from conflict between the AFP and Muslim insurgent, particularly on Mindanao, one of the three largest islands in the Philippines archipelago. The main Muslim insurgent groups have been the Moro National Liberation Front (MNLF) and the Moro National Liberation Front (MILF). The MILF split from the MNLF in 1978 after the latter changed its goal from independence to autonomy." (USCR, 1999) "Armed conflicts and demolition cases displaced some 20,470 families or 122,820 individuals in 1998, according to the Ecumenical Commission for Displaced Families and Communities (ECDFC). From January to December 1998, the ECDFC documented 27 incidences of displacement, 74% of which, or 20 cases, were due to armed conflicts. ( ) During the first half of 1998, the ECDFC received 12 reports of displacement incidences, 10 of which were armed skirmishes in Orion, Bataan; Sirawai, Zamboanga del Norte; Polomolok, South Cotabato; Bagumbayan, Sultan Kudarat; Marilag District, Davao City and Basilan Province. It noted a 33.3% drop in the number of incidences compared to the 18 displacement cases during the same period in Notably, it said, both the government and political groups were preoccupied in helping their respective candidates win during the May national elections. For the second half of 1998 or during the first six months of the Estrada administration, the ECDFC recorded 15 cases of displacement, 66% of which, or 10 cases, were armedconflict related. ( ) The ECDFC said that remote communities in Maguindanao, North Cotabato and Basilan were hard hit by clashes between government soldiers and members of the Moro Islamic Liberation Front (MILF), leaving thousands of civilian population receiving the brunt of these gunbattles. ECDFC noted that people were compelled to arbitrarily leave their homes because bombings, killings, harassment and fear of being caught in the crossfire. ( )" (ECDFC, 16 February 2000) Update on the latest displacements in the Philippines (February 2001) "The year 2000 ends with 45 cases of displacement affecting 204,111 families from 580 barangays. Except for two cases of demolition, all the cases reported were caused by armed clashes between the government and the rebel forces particularly the Moro Islamic Liberation Front (MILF). Of all these cases, only two happened in Luzon and the rest in Mindanao. Among all, only one case was the result of armed clashes between government soldiers and New Peoples Army rebels, the rest were the results of clashes between government soldiers and MILF rebels. 9

11 The all out war operations declared by former President Joseph E. Estrada in March 2000 has been suspended in December to pave for the Muslims celebration of the Ramadan. On January 6, 2001, the military operations resumed. Reportedly, tension escalated anew following a clash between the Marines and the Moro Islamic Liberation Front (MILF) rebels in the town of Barira, in Maguindanao province. Two hundred forty-four (244) families evacuated to the town s elementary school as a result of this fighting. On January 10, 2001, the 39th Infantry Battalion and Scout Rangers of the Philippine Army encountered about 300 MILF rebels in Bgy. Lipas, President Roxas, North Cotabato. Again on January 11, 2001, a two-day offensive was launched by government troops that lead to the capture of Camp Usman (named as Little Abubakar by the military) in North Cotabato. There were unrecorded fatalities on both sides. (ECDF 5 February 2001) Conflict in Mindanao Goverment and MILF compete over Mindanao's natural resources The Muslims are the largest single minority group in the Philippines and reside mainly in Mindanao. Muslim provinces are largely under-developed compared to the rest of the country. The Autonomous Region for Muslim Mindanao (ARMM) was created in 1990 to grant more autonomy the Muslims and to foster the development of the region. Leader of MNLF elected as governor of the ARMM in The moro areas in Maguindanao, Sultan Kudrat, North and South Cotabato, Basilan and the Sulu islands have rich reserves of untapped natural resources, raw materials and, cheap labor. Mindanao represents 48 per cent of gold production, 63 per cent nickel and 18 per cent charcoal in the country s total reserves. "About 5 million Muslims, who constitute 7 percent of the population, reside principally in Mindanao and nearby islands and are the largest single minority group in the country. Historically, they have been alienated from the dominant Christian majority, and government efforts to integrate Muslims into the political and economic fabric of the country have met with only limited success. The national culture, with its emphasis on familial, tribal, and regional loyalties, creates informal barriers whereby access to jobs or resources is provided first to those of one's own family or group. Many Muslims claimed that they continue to be underrepresented in senior civilian and military positions. Provinces in Mindanao that are predominantly Muslim lag behind the rest of the island in almost all aspects of socio-economic development" (U.S. DOS, 25 February 2000, sect. 4) 10

12 "The Autonomous Region in Muslim Mindanao, or ARMM, was created in 1990 to help solve the long-festering Muslim problem and at the same time hasten the economic development of the Muslim areas. At present, however, the ARMM only covers the four provinces of Sulu, Tawi-Tawi, Maguindanao, and Lanao del Sur. Through a plebiscite in 1989, the predominantly Christian residents of the 14 provinces and 10 cities expressed their preference not to join the ARMM. On September 9, 1996, elections were held for the ARMM officials. Prof. Nurallaji Misuari, the Chairman of the Moro National Liberation Front (MNLF), was elected as governor, with Guimid P. Matalam as vice governor. They replaced Linding Pangandangan and Nabil Tan as governor and vice governor, respectively. Also elected with them were 121 regional assemblymen. The ARMM elections were considered unique because they were peaceful, despite being held in what has been the country's traditionally most volatile areas. After his election as ARMM governor, Misuari has assumed the role of peace broker in Mindanao. He promised to use "moral pressure" to convince members of the Abu Sayyaf group and the Moro Islamic Liberation Front (MILF) to lay down their arms and assist the government in promoting peace and development in Mindanao. ( )" "Mindanao spreads over 94, 229 sq km/34 percent of country s land area and provides a substantial contribution to the country s economy. The moro areas in Maguindanao, Sultan Kudrat, North and South Cotabato, Basilan and the Sulu islands have rich reserves of untapped natural resources, raw materials and, cheap labor. The GoP s all-out war against the MILF has mainly been because of these resources. As many observe, Mindanao is the Land of Promises and in fact is the Rice Bowl of the Philippines. The land is characterized by fertile soil suitable to cultivate a variety of crops and has a timberland of nearly 39 per cent of nation s forest cover, despite massive deforestation. These areas, especially those within the MILF camps have potentials for super profits. Mindanao represents 48 per cent of gold production, 63 per cent nickel and 18 per cent charcoal in the country s total reserves. The Philippine National Oil Company (PNOC) is eyeing on a marshland in the said area for natural gas extraction. The Moroland Sugar Corporation is planning to establish a milling facility within a 25,000 hectare land area which will traverse six municipalities. The Consunji concession and a Malaysian corporation are planning to log and to put up a palm oil tree plantation respectively in the town of Buldon. These are but examples of the region s potentials as an investor s haven. The MILF is a deterrent to the government s program of attracting more foreign investors in the region." (Oxfam November 2000 pp. 4-5) For more information about the MILF and the Moro struggle see: 11

13 Overview of the Moro struggle through history and The Moro struggle for selfdetermination and the Moro Islamic Liberation Front, by the Task Force Detainees of the Philippines (TFDP), May 2000 Conflict and displacement in Mindanao ( ) "The Philippines has various ethnic minorities within the larger Christian-Filipino society. While the state has appeased most of the more than eighty ethno-linguistic groups nationwide, it has not made peace with the Islamized ethnic groups in the south. Nationhood among Islamized ethnic groups in the south is based on specific ethnic identifications unified by Islamic tradition that first influenced the Sulu islands in the 13th century. In the most recent phase of the Muslim struggle for nationhood, the Government of the Republic of the Philippines (GRP) made peace with the Moro National Liberation Front (MNLF) in Despite high expectations, the peace agreement has not prevented the resurgence of armed conflict and the emergence of new representations asserted by the Moro Islamic Liberation Front (MILF) and the Abu Sayyaf (Father of the Sword) Group in Mindanao, now renamed as the Al-Harakatul-ul-Islamiya (Islamic Movement). Barely a month after the signing of the Peace Agreement, the MILF prepared for war and began to reassert its own representation of the demands of the Moro people. In a display of mass strength during the Bangsa Moro People s Assembly in Cotabato City on 3-5 December, 1996, it declared its rejection of the Peace Agreement and reaffirmed its commitment to Islamic independence. Four years later, all-out armed confrontations between government forces and the MILF, as well as the Abu Sayyaf, caught domestic and international public attention. Hostilities escalated in 9 municipalities of Maguindanao, 5 in Cotabato, 3 in Lanao del Sur, 1 in South Cotabato and in the cities of Cotabato and General Santos. Refusing to recognize the MILF as a legitimate representative of the Moro people, the Philippine government engaged in dual tactics: military confrontations and piece-meal negotiations. Initial meetings between the MILF and the GRP in April, May and June of 1997 were bogged down by continued fighting. In June 1987[sic], government forces attempted to seize control of Camp Rajamuda, the MILF s second biggest camp, resulting in the displacement of around 75,000 people. Intense fighting continued until July after which the GRP and MILF signed an Agreement on the General Cessation of Hostilities (AGCH). This was followed by the signing of the Implementing Administrative Guidelines on the AGCH on September 12, By November, the two parties had signed a Ceasefire Agreement. Upon the election of Estrada to the presidency, his government appointed a new negotiating panel to talk peace with the MILF. What followed was a rough process that 12

14 swung from war to negotiations finally leading to the government s all out offensive in April Two days after the government offensive, the MILF unilaterally suspended talks with the government. By May 7, 2000, the Department of Social Welfare and Development (DSWD) reported that the clashes in Maguindanao, Cotabato and Lanao had already affected 23,031 families (123,758 persons of whom 74,691 were housed in evacuation centers). By August 439,000 people had evacuated of whom 340,265 were housed in evacuation centers." (Oxfam January 2001, pp. 5-6) For more information about the Peace Agreement, see : Kalinaw Mindanaw, The Peace Process, "To Talk or not to Talk: the Ups and Downs of the GRP-MILF Peace Talks", November 1999 "On the GRP-MILF Peace Talks", November 1998 "Peace and Development: The MNLF and the SPCPD Experience", November 1998 "Priority Issues and Concerns about the Implementation of the 1996 GRP-MNLF Peace Accord", November 1998 "The Highlights of Implementation of the Final Peace Agreement", August 1998 The warring parties "Armed Forces of the Philippines (AFP) - The AFP has a total active duty strength of 106,500 distributed across the following armed services: Philippine Army 68,0000; Philippine Navy (including 8,400 Marines and 2,000 Coast Guard) 23,000; Philippine Air Force 15,500; and a reserve force of 128,000. This does not include the 13 Regional Commands of the Philippine National Police which is directly supervised by the Department of Interior and Local Governments. It has a 2000 budget of PhP 41 billion (roughly USD 820 million at current exchange rates), up from PhP 14.4 billion (USD 680 million) in Military expenditures soared during the offensive against the MILF. In June, President Estrada ordered the release of an initial PhP billion for the AFP s modernization program. At the height of the military campaign in July, Estrada approved an emergency purchase of ammunition worth PhP 1.47 billion believed to the biggest purchase to have been made by the AFP in recent years. In Cotabato, at least 5 army battalions are currently deployed (40IB, 39IB, 75IB and 27IB). They are backed up by mobile Scout Rangers and Army strike forces as well as the PNP s Special Action Force. 13

15 MILF and the Bangsa Moro Islamic Armed Forces (BIAF) - Led by Hashim Salamat, the MILF takes its roots from the MNLF and was originally established in 1978 as the New MNLF before it renamed itself the MILF. While it was originally confined to the Maguindanao faction of the MNLF, it has expanded and embraced other Islamized ethnic groups to include Tausugs, Yakans, Maranaos and Iranuns to include even former MNLF fighters. The BIAF has an estimated strength of 15,000 armed fighters, by far the biggest insurgent force in the Philippines to date. This armed strength is forward-elastic when backed up by the strength of armed civilians who can be mobilized by a call to arms as in Hashim Salamat s call for jihad after the government launched its offensive. With the jihad other considerations, such as ethnicity, lose saliency in favor of providing a common defense against other non-islamic groups. Although hard data is not available, forward elasticity is also influenced by the MILF s capacity to mobilize child soldiers. Acquisition of and bearing of firearms is part of the cultural rite to manhood among Islamized ethnic groups. Secondary Actors in Central Mindanao New People s Army (NPA) - The CPP-NPA is in the process of recovery after the fractious ideological split in It has declared an alliance with the MILF which is also confirmed by the latter. Its low key potential in the conflict can be inferred from its operational proximity to the Central Mindanao conflict owing to its presence in the border provinces of Bukidnon, Davao del Sur and Cotabato. Like the MILF and in the absence of an age limit in its Constitution, the NPA is capable of mobilizing child soldiers. Young recruits join NPA units as couriers, combat support elements or as reserve elements during battles. The Citizens Armed Forces Geographical Units (CAFGUs) date back to the 1950 s when then President Ramon Magsaysay established the Barrio Self-Defense Units (BSDUs), a citizen s militia to work alongside the Philippine Constabulary and the Philippine Army in fighting against communist guerrillas called Huks, later renamed as the HMB. At the height of the communist insurgency in the 80 s, President Marcos established its successor, the Integrated Civilian Home Defense Forces (ICHDF), most infamous for vigilantism against communist guerrillas and sympathizers. The present CAFGU is anchored on President Aquino s 1987 Executive Order 264. There are currently 30,000 CAFGUs mobilized in support of the AFP with a budget allocation of PhP 876,5 million this year. Around 72 % are deployed in the AFP s Southern Command Mindanao (IBON Features). Its strength reached a peak of 75,000 in 1992 (Philippine Daily Inquirer, 14 March, 2000). 14

16 In March, President Estrada approved a PhP 1 billion plan to mobilize an additional 35,000 CAFGUs. Around 10,000 were actually deployed in Mindanao by the end July at the height of the military offensive against the MILF with a budget of PhP 119 million out of the PhP 313 million originally requested by the AFP (IBON Features). The common perception is that CAFGUs, being an adjunct to the AFP s war against Moro rebels, generally favour the Christian population. The Justice and Peace Desk of the Diocese of Kidapawan cites the example of the village of Rancho in Liliongan, Carmen (Cotabato) when on 3 December, 2000, CAFGUs allegedly burned 97 houses owned by Muslims. The present CAFGUs are largely untrained villagers, often local thugs issued weapons by the government for a meager salary of PhP 1,800 a month. While the government spends PhP 120,000 a year to maintain an AFP regular, a CAFGU member costs the government only PhP 21,600 a year. In practice, what actually entices people to join is not the salary but the license to carry firearms and the sense of power that brings it; from this arises the perceived license to abuse human rights. Civilian Volunteer Organizations (CVOs) - There are 10,000 CVO members in Cotabato funded by the Provincial Government. Every barangay in Cotabato has a maximum of 40 CVO members, according to Nasser Ali, Research and Documentation Officer of JP-Kidapawan. Membership in the CVO provides a chance for armed civilians to legitimize their possession and carrying of weapons outside their homes. National Islamic Command Council (NICC) - The NICC was formed in 1994, led by Milham Alam, former Chief of Staff of the MNLF s Bangsa Moro Army (BMA). It is composed of more radical members of the MNLF. It has a secessionist goal like the MILF. It is alleged to have a military alliance with the MILF evidenced by the MILF- NICC joint attack on the Municipality of Kauswagan (Lanao del Norte) on 17 March, Other Armed Actors Bandits and Pseudo-Rebels - There is no hard data available on the strength and number of bandit groups operating in the region. Their anti-social activities tend to intensify during heights of conflict during which prejudices between Christian and Muslims are exacerbated. One infamous group that operates in Carmen (Cotabato) is the group of Commander Pakil Ayunan a Muslim bandit group with an established notoriety for killing Christian civilians. Muslim and Christian bandit groups are customarily disowned by government forces and the MILF even as they serve to broaden the conflict and multiply the disastrous effects. Special Cafgu Active Auxiliaries (SCAAs) - Special Cafgus were established in 1989 on the authority and guidelines issued by then Defense Secretary Renato de Villa. They are special units trained and armed by the government but have been deployed to private 15

17 corporations. There are 2,698 members of SCAAs deployed in 33 company-sized formations, 32 of which are deployed in Mindanao. Some of the companies they serve are Dole Philippines (pineapple plantation), Stanfilco (banana plantation) and PICOP (logging). Although SCAAs are not deployed for state-related armed conflicts, they get involved in land disputes and labor-related problems that are essentially part and parcel of the whole social conflict that fuel the armed conflict." (Oxfam January 2001, pp. 6-9) Conflict and displacement continued during 1999 Cease-fires took hold during 1999 but were regularly broken. 50,971 families displaced by armed clashes in Mindanao in ,000 displaced by armed conflict in the first 7 months of ,000 displaced in Maguindanao and Cotabato in February. 6,000 displaced by armed clashes in Maguindanao during November. "Throughout the year, peace talks between the government and Muslim insurgent groups continued but did not result in an agreement. Cease-fires took hold ans were broken, and the fighting resulted in more deaths and displacement." (USCR, 2000) "In 1999 [in Mindanao] alone, there have been 26 incidents of displacement or evacuation due to fighting, affecting some 148 towns, barangays and municipalities, dislocating 50,971 families from their homes and their livelihoods. ( ) while 235 families from the Visayas region were displaced by clashes between government troops and communist rebels." (PAHRA, April 2000) "About 138,000 people were displaced by armed conflict in the Philippines in the first seven weeks of this year [1999], a senator said yesterday, reports Reuters. Opposition legislator Loren Legarda, citing statistics gathered by a local Roman Catholic Church commission, said 27,647 families had abandoned their homes as a result of fighting between the military and various rebel groups, including communists and Muslim separatists on southern Mindanao island. This has surpassed the 20,470 families displaced by armed conflicts in the whole of 1997, she said. She gave no figures for More and more families are being forced to leave their homes and abandon their sources of livelihood as a result of armed encounters, counter-insurgency operations and harassment by paramilitary units," Legarda said." (UNHCR Refugee News, 8 March 1999) "In February 1999, 75,000 people were displaced following clashes between the army and the Moro Islamic Liberation Front (MILF) in Maguindanao and Cobatabo." (MSF, October 1999) "During November Government and the MILF clashed in North Cotabato and Maguidanao provinces in Mindanao. A reported 45 combatants on both sides were killed in the fighting. An estimated 6,000 persons reportedly were displaced during the skirmishes." (U.S. DOS, 24 February 2000, Section 1g) 16

18 Displacement in the wake of escalated fighting between MILF and Government forces in Mindanao (February 2001) Heavy fighting occurred in Maguidanao from January to February. Months of shaky peace talks have led to the recognition of 13 MILF military camps. Government blames MILF of bombings to justify military offensive, forcing 10,000 people to flee Kauswagan and seek refuge in Iligan City. Armed clashes erupted in Maguidanao between MILF and Government forces over highway dispute at the end of April. Government and MILF met and agreed to pursue peace process on April 27. On April 30, Government forces attacked camp Abukabar and triggered an all-out military response by the MILF spreading rapidly to other Mindanao provinces. 75,000 displaced by the fighting in Central and Northern Mindanao by mid-may. Fighting and displacement continued until the end of 2000 and the beginning of 2001 "The escalation of the armed conflict between government forces and the Moro Islamic Liberation Front may be seen as a consequence of the government's militaristic response to the long-drawn struggle for the right to self-determination of the Moro people. The months of shaky peace talks between the MILF leadership and members of the government panel has earlier led to the military recognition of some 13 main camps of MILF in Maguindanao, South Cotabato, Lanao del Norte and Lanao del Sur. For the rebels it was a virtual acceptance of their belligerency status by the Philippines state, a development which Malacanag considered as a political setback and a slap at Estrada's "macho leadership". To recover from that blunder, the government stepped up its military offensives in rebel positions which precipitated the outbreak of an all out armed confrontation between the government armed forces and MILF fighters. Prior to the eruption of armed hostilities in Lanao del Norte, the government has accused the MILF of instigating the bombing of public buses and a ferry boat in Ozamiz City last February 25 where around 40 civilians were killed and wounded. The public was outraged by the tragic violence but no group came out to claim responsibility for the incident. Whether it was the handiwork of Islamic rebels or a special project of the military psy-war experts, nobody knows for sure. But whoever was behind the bombing has certainly succeeded in igniting anti-moro sentiments. It has created an excuse for the renewal of full-scale military assaults against the Moro rebels, despite the cease-fire agreement between the MILF and the Estrada administration. "(TFDP, March 2000) "In the beginning of the new millennium, heavy fighting occurred. It started in North Cotabato in November 1999, in Maguindanao from January to February The war in Lanao del Norte erupted in March almost simultaneously with the abduction of some 27 local residents of Basilan by the Abu Sayyaf ( )" (Kadtuntaya Foundation, 11 May 2000) "In the heat of the armed clashes some 10,000 Moro and Christians civilians were forced to leave Kauswagan and other neighbouring barangays [the smallest administrative unit in the Philippines] to escape from the hostilities." (TFDP, March 2000) 17

19 Most of the displaced sought refuge in Iligan City. As of March 24, the total number of IDPs being accommodated there reached a total of 16, days later that number had receded to 6,885. As of the end of May all had returned. (Republic of the Philippines, 10 April 2000) "Towards the end of April, renewed clashes took place in Matanog, Maguindado. ( ) As the war in Lanao del Norte started to subside in April, the AFP started to mass-up their forces at the foot of Camp Abubakar, the largest camp of the MILF at Matanog, Maguindanao. Accordingly, their mission was to clear the Narciso highway of illegal toll collectors which they identified as MILF forces. The MILF who had established checkpoints in some part of the highway was allegedly harassing passenger vehicles by collecting illegal fees. Alarmed by the presence of the Marines near the perimeter defence of the MILF, the latter also started to mass-up their forces at a shouting distance from the soldiers. The MILF was there to protect the camp from the encroaching military forces. The situation alarmed the civilian population who started to flee their homes. To prove that the MILF forces were not responsible for the so-called illegal collection, a contingent of the local police and some MILF forces launched an operation to arrest the "collectors". The succeeded to arrest 7 but released them after they promised not to do it again." (Kadtuntaya Foundation, 11 May 2000) "On April 30, soldiers fired mortars and Howitzer cannons into the perimeter of the MILF's biggest camp in Maguindanao, hitting hard the towns of Matanog, Sharif Aguak and Buldon. The military justified their action, saying that it was intended to clear the Narciso Ramos Highway of checkpoints set up by the rebels. The highway connects Matanog and South Cotabato and serves as an important passage for trade and commerce in central Mindanao. MILF fighters defended their positions and fought back, resulting in fierce gunfights that drove thousands of civilians to evacuate. MILF Vice-Chairperson for Military Affairs, Al Haj Murad, announced that a peace talk is no longer tenable under the present condition. He declared an all out military response to the government attacks. Now, the fighting has spilled over in places outside central Mindanao. According to the military, the MILF forces are responsible for setting road blocks and taking sabotage actions against power lines and the attacks in military detachments, government buildings in South Cotabato, General Santos, Sultan Kudarat and Zamboanga del Sur. Public officials have warned the rebels not to use civilians as "human shields" and to avoid taking military actions that would harm non-combatants." (TFDP, 5 May 2000) "( ) the hostilities are now escalating in 9 municipalities of Maguindanao province, 5 in North Cotabato, 3 in Lanao del Sur, 1 in South Cotabato and the two cities of Cotabato and General Santos. Particularly in General Santos, anti-muslim sentiments are coming out which forced some Muslim residents of the city to take refuge among their relatives in other places. There are also high indications of the resurgence of vigilante groups being organized by the Christians. The total number of evacuees is conservatively 18

20 estimated to have reached 75,000 families all over Central and Northern Mindanao. ( )" (Kadtuntaya Foundation, 11 May 2000) "Some 600 families with 3,799 dependents from four remote villages in Kiamba town in Sarangani [General Santos City] fled their homes due to fighting between government forces and Moro Islamic Liberation Front rebels. The evacuation of civilians started on Saturday when about 100 suspected MILF guerrillas attacked a military outpost manned by elements of the Army's 68th Infantry Battalion in Barangay Tambilil on Saturday afternoon. No casualty was reported on both sides, but residents in Barangays Tambilil, Datu Dani, Gasi and Kapate left their homes. ( ) All the evacuees temporarily sought refuge in Kling, where they put up makeshift tents along the national Highway." (PDI 11 September 2000) "Fighting between soldiers and Moro Islamic Liberation Front rebels has triggered a wave of evacuations at the foot of Mt. Apo in Toril district [Davao City] here. Disaster and social welfare offices here recorded a series of evacuations starting Saturday following two separate encounters between government forces and a group of MILF rebels in Upper Baracatan in Toril district. ( ) A total of 433 families fled their homes in Upper Baracatan in Toril district, according to the Davao City Disaster Office and the City Social Services and Development Office here. Most of the evacuees fled to the houses of their relatives who live just outside the battle zones in Upper Baracatan while some 100 more families decided to stay at the Rizal Elementary School in Baracatan proper." (PDI 21 September 2000) "At least 44,000 residents in seven towns have been displaced by the ongoing military operations in the province [Jolo, Sulu], but relief and health workers have served less than half the number. ( ) Sulu Gov. Abdusakur Tan said evacuation centers had been put up in the towns of Parang, Maimbung, Indanan, Talipao, Panamao, Luuk and Patikul. ( ) In Manila, Vice President and Social Welfare Secretary Gloria Macapagal-Arroyo yesterday reported to Press Secretary Ricardo Puno, that 7,696 families (34,231 residents) in Sulu had been affected by the military operations." (PDI 26 September 2000) 19

21 "Thousands of people fled villages in Maguindanao and Sultan Kudarat as Moro guerrillas stepped up offensives in Buluan, Lutayan and Columbio towns and government forces rained bombs on Friday. ( ) Sultan Kudarat Gov. Pax Mangudadatu said some 2,000 evacuees sought refuge in Columbio following day-long skirmishes between the MILF and Army troopers of the 6th Infantry Division on Thursday. Some 200 evacuees converged in Buluan and Lutayan towns, while hundreds of others fled to neighboring Koronadal City, he said. It could not be ascertained if Mangudadatu was referring to the number of families or individuals. ( ) On Nov. 16, Kidapawan Bishop Romulo Valles reported that from l1,401 families listed as evacuees in July when President Estrada declared the end of the war with the MILF after the fall of the rebels Camp Abubakar, the number now stood at 15,072." (PDI 19 November 2000) "More than 6,000 people fled their homes following three days of shelling and ground operations mounted by government soldiers against Moro rebels here [Pikit, North Cotabato] and in nearby Pagalungan town in Maguindanao. ( ) Malingco reported that the bombings triggered the evacuation of people in Barangays Kabasalan, Barongis and Buliok here and in Barangay Kalbugan in Pagalungan. ( ) The evacuees are scattered in eight villages here. They are receiving relief assistance from the Pareco and the National Disaster Coordinating Council. ( ) Malingco said the evacuees promised to return to their homes as soon as they get relief goods. But Dureza said reports from a team he sent to the area indicated that a number of the evacuees went toward the Liguasan Marsh, far from government and non-government relief groups." (PDI 18 February 2001) For further details on the chronology of events, see "How war erupted in Central Mindanao", Gaston Z. Ortigas Peace Institute, 20 October 2000 For more information on the evacuation centres in Iligan City see "Population of the 15 evacuation centers of Iligan City as to IDPs 'origin (22 March 2000)" 20

22 Peace efforts (March 2001) On 21 February 2001, President Arroyo declared a unilateral ceasefire to bring the MILF back to the negotiating table. The new members appointed to the government negotiating panel have been widely accepted since the head and members are from Mindanao. A week later the MILF responded positively to the government's offer of new talks and agreed to reopen the communication line. On March 15, the MILF formely accepted the President's offer to resume peace negotiations. (MB 15 March 2001) Senate President Aquilino Pimentel's proposal for the establishment of a federal system of government, supported by ARMM chair Nur Misuari and MILF leader Hashim Salamat, will be central on the agenda of the peace negotiations. (MB 27 February 2001) With regards to the communist National Democratic Front (NDF), President Arroyo announced on 13 March 2001 that peace talks would resume on April 27. The NDF withdrew from the peace talks nearly two years ago when the Senate agreed to the resumption of large-scale US military exercises in the Philippines. (PDI 14 March 2001) " Moro National Liberation Front The peace agreement between the MNLF and the government was recently reviewed by the OIC, which conducted a fact-finding mission to the Philippines from 16 to 22 October, as its response to the representations made to it at the Kuala Lumpur meeting in May. The issue was differences between the government and the Moro National Liberation Front on the progress made in the implementation of the 1996 Peace Agreement brokered by the OIC. The OIC mission reported on the following observations: the progress of integration of MNLF into the Armed Forces of the Philippines has been positive. the differences between the MNLF and the Government in interpreting the political dimensions of the peace agreement continue to be an obstacle to progress the progress in socio-economic development is noted as is the need for more efforts. the government should do more to address the plight of the families displaced by the conflict Government of the Philippines With the substantial degrading of the military capabilities of the MILF, Government is maintaining that the national security strategy for Mindanao (Four Point Programme of 21

23 the President: restore/maintain the peace, socio-economic development, pursue peace talks with the MILF: and fully implement the GRP-MNLF Peace Agreement) is working well and gaining ground. However, further progress in achieving this strategy is severely constrained by a number of factors: Autonomy and Investment is still pending. The 1996 peace agreement was a commitment by both parties for autonomous governance and for socio-economic development in Muslim areas of Mindanao, to be defined through an act, a plebiscite and elections. The revised organic act to provide for more meaningful autonomy is still being deliberated by the Philippine Senate, while the plebiscite and elections are scheduled for next year. The substantial investments in development for communities in SZOPAD is still a matter of contention between government and MNLF. Increased human insecurity. While the military capacity and organisation of the MILF has been degraded, the capacity of the MILF and others elements to wage guerilla warfare has not been eliminated and there is increasing pressure for the formation of para-military and vigilante groups. While close to 60% of displaced persons have returned home, the remaining 40 percent have been unable to return to their place of origin due to unstable security conditions and the destruction of their homes at the height of the fighting. The political economy of war has had serious effects on Mindanao. Budgets have been reoriented for the war effort, there is disinvestment and disruption of services, and external cooperation projects have been delayed. Increased political uncertainty. In recent weeks national political problems have been a distraction from the amount of time and effort required to address peace and development in Mindanao. While government s policy towards peace and development remains unchanged, priorities seem to have shifted towards managing the current crisis of confidence in the Presidency. Autonomy for Peace and Development. Autonomy for Peace and Development is still the accepted win/win scenario. Despite the weakness of the current transitional autonomous arrangements, an autonomous governance is still widely accepted as the recognized winwin scenario. Notwithstanding its recent defeat, the MILF continues to command a military force of approximately 15,000. The MNLF on the other hand, is estimated by the military to be the larger force, and continues to retain ownership of its arms. The MNLF remains firmly committed to peace and peace negotiations. Moro Islamic Liberation Front Recent skirmishes between the Moro Islamic Front and Government has affected several communities in Central Mindanao. Informal exploratory discussions continue to occur between government and MILF representatives. In contrast to an earlier government position against the internationalization of the conflict, the President has indicated willingness to pursue talks 22

24 with the MILF in a foreign venue. This marks an important change in the negotiation strategy of government. On the one hand, this change could be viewed as an opportunity for the MILF not only to negotiate more concessions, but also as opportunity for government to generate positive breakthroughs amidst the negative criticism it has been receiving lately on other fronts. The MILF spokesperon, Eid Kabalu recently indicated that they were seriously considering reports on the President s willingness to meet one-on-one with MILF chair Hashim Salamat. On the other hand, because of the uncertainty caused by the negative criticism, the impeachment proceedings and the calls for resignation, the MILF may decide to postpone negotiations on substantive issues until the impeachment/resignation issue is settled and the possibility of a change in administration (and consequently of a change in policy for Mindanao) is addressed." (Office of the Resident Coordinator, 24 November 2000) Government's strategy vis-à-vis the MILF " Government has announced that it has not abandoned its peace negotiation with the Moro Islamic Liberation Front, even after soldiers had captured Camp Abubakar, the MILF s main base. To guide its strategies vis-à-vis the MILF, the government has adopted a four point policy framework: The Government s first aim is to restore and maintain peace in Mindanao, for without peace, development cannot proceed effectively; accordingly, the Government shall assert and uphold its authority and solemn duty under the Constitution to preserve our territorial integrity as one nation, maintain law and order, and protect the civilian population, through effective military and police actions against illegal acts, terrorism, and other forms of lawless violence perpetrated by the MILF and other rebel groups. The Government shall vigorously pursue reconstruction and socio-economic development in Mindanao particularly those affected by the armed conflict including those in former MILF area of influence, to immediately uplift the living conditions of our people, and in the long run, to enhance their social, economic and cultural well-being. Without prejudice to paragaph 1 above, the Government shall continue to pursue the peace talks/peace process with the MILF within the framework of the Constitution and the concept of meaningful autonomy. The Government shall continue with the full and effective implementation of the GRP- MNLF Peace Agreement as a commitment and proof of our sincerity and goodwill, to resolve the Mindanao problem politically, and likewise to serve as moral encouragement for the MILF to embrace autonomy. The policy framework is concretized through the preconditions set by the government for ceasefire, which the MILF has rejected. It is the basis for the President s pronouncements on Mindanao during the State of the Nation Address. It is also the policy anchor for the 23

25 creation of the Mindanao Coordinating Council." (Office of the Resident Coordinator, 7 August 2000) See also for more information : The speech of Moro National Liberation Front (MNLF) Chair Leader and governor of the ARMM, Nur Misuari, "A Quarter of a Century OF ILLUSORY AND FRUITLESS PURSUIT OF AUTONOMY: -- The MNLF's Urgent Call For A Realistic and Pragmatic Tactical & Strategic Approach", May 2000 Center for Sustainable Peace and Economic Progress, "Chronology of Events, The Continuing Search for Sustainable Peace in Mindanao: A View from a Distance", 14 June 2000 Forced displacement due to the implementation of government or private construction projects 30,000 indigenous peoples in Benguet province to be displaced by dam project (December 2000) "The Philippine government's biggest flagship project costing $1.9 billion in loans will submerge more than 50,000 acres of farmlands, displace 30,000 indigenous peoples in the province of Benguet and flood 1.5 million people in Region One and Central Luzon. Named San Roque dam after the town where it is located, the project is the biggest hydroelectric power plant in Southeast Asia and the third largest in all Asia after the Twin Rivers dam of Yangtze River in China and the Narmada dam in India. It is expected to generate 345 megawatts of hydroelectric power for this country which is in dire need of electricity to keep its industrial firms operating, especially those owned by multinational companies. But while the hydropower industry is celebrating the dam construction as a major success story in private sector financing, a double bladed problem has emerged. First, the social problems that the dam is causing and second, the environmental risks that threaten to wipe out lowland populations. The dam will forever wipe out not only 30,000 people but more so the peoples' land, culture and livelihoods. These people, called Ibalois, have already been displaced once when the Ambuklao dam was constructed in Benguet in They are a distinct tribe with their own traditional socio-political institutions, traditions and values. They rely mainly on agriculture for their everyday subsistence. The construction of the damspells their very doom." (Earth Times News Service 7 December 2000) 24

26 Displacement linked to implementation of Government modernization plan ( ) Vulnerable communities are evicted from their land to make way for industrial projects. About 84,000 persons lost their homes during the first 6 months of 1998 due to construction projects. Government accused of evicting people without proper resettlement plans. In December 1998, 14,000 families were forcibly driven away from their community because of a airport and road improvement and were not properly relocated. In February 1999, 9 demolition incidents have affected 2,124 families. In 7 incidents the families have not been provided with relocation sites. During 1999, there has been an increase in the Government's forcible displacement of squatters from their illegal urban dwellings to make way for industrial and real estate development projects. "In the Philippines, the largest of the growth zones being developed under the government's modernization plan - Philippines links the five provinces of Cavite, Laguna, Batangas, Rizal, and Quezon in the CALABARZON growth zone. Domestic and foreign investors are being provided with huge tax incentives to establish industrial plants in the zone, which they are doing on a large scale. At the southern tip of the zone, in Batangas, the results are evident in spiralling land prices, which have tripled over the past two years. The result: vulnerable communities are being evicted from their land to make way for speculators and assorted projects. According to the Community Extension for Research and Development, an Oxfam International partner which is working with the threatened communities, around 6,000 people are facing eviction in Batangas alone. Many are fisher communities who have been living in the same villages for generations. The same scenario is being played out in thousands of sites across the Philippines and elsewhere in East Asia." (OXFAM Australia, 1997) "In the first 6 months under President Estrada [May-November 1998], 14,035 families or about 84,000 persons have lost their homes to give way to real estate and other construction projects. For just 10 days since February 1, 1999, the Task Force Detainees of the Philippines witnessed the demolition of homes of some 433 families in different parts of Metro Manila. ( ) The government of the Philippines by virtue of having signed the Universal Declaration of Human Rights of 1948, the International Covenant on Economic, Social and Cultural Rights (ICESCR) and the domestic law, Urban Development and Housing Act (UDHA, RA 7279) has the responsibility and state obligation to protect, respect and promote human rights including the right to adequate housing. The aforementioned incidents are proofs that government agencies have in different ways violated the UDHA and failed in its obligations as signatory to international human rights laws. Government agencies, including the police instead of protecting the citizens of the country are in fact the violators of their rights. They burned and looted housing materials, threatened the people and demolished their homes without nameplates. 25

27 In these cases, TFDP has witnessed differences of position by government agencies, which have not been resolved at the sacrifice of the people affected by demolitions. In the past, TFDP has documented many cases where urban poor dwellers were left in "temporary staging areas" instead of having "permanent relocation areas" and we fear that such will again happen to those who were brought to the temporary shelters. And we are concerned that demolition of homes is occurring without any staging area or settlement area as in the sea wall incidents.( )" (ECDCF(b), 16 February 2000) "As important as adequate housing is to everyone, a big number of Filipino population live in poor housing conditions. Moreover, the forcible eviction and violent demolition of urban poor communities to give way to the construction of infrastructure projects and commercial and recreational facilities belie the human rights commitment and the propoor rhetoric of the Estrada Administration. The Task Force Detainees of the Philippines (TFDP) has documented some 102 cases of demolition where 21,828 houses were destroyed from January to August of In Gen. Santos City in Mindanao, some 14,000 families were forcibly driven away from their community in December 1998 because of an airport and road improvement project eyed by the government. The displaced residents where not provided with relocation opportunities. Some 374 families lost their homes in the Sea Wall, CCP Complex, Pasay City last February 8, The demolition occurred upon the order of the Commission on the Settlement of Land Problems (COSLAP). The National Anti-Poverty Commission said that the demolition was unlawful because the affected residents were not provided with a relocation site. Housing materials of the residents were also burned down by the demolition crew. The protesting urban poor were harassed by authorities. Some 53 families in Barangay 682 in Paco, Manila were brought in a staging area in Bagong Silang in the aftermath of their eviction. However, no permanent settlement site was provided for them. In February 1999, the Urban Poor Associates (UPA) has documented nine other demolition incidents which affected 2,124 families. Four of the demolition incidents took place in government lands and five were on private properties. The families that were affected on government lands were 1,280 or (60.26%) while 844 or (39.73%) families for private. In many incidents, the demolition crew use heavy equipment such as bulldozers to tear down houses. They are usually backed up by private security guards, police and military forces. It is not uncommon for residents to defend their dwellings which is often answered with violence by authorities. ( ) Inadequate budget and the economic crises is a standard excuse of the Estrada government for failing to provide the key elements of the housing rights. In the nine demolition incidents recorded by UPA as of February 1999, relocation sites were not provided for families in seven eviction incidents. Those who were transferred in government housing projects have bewailed the lack of livelihood opportunities and inadequate social services in their relocation areas." (TFDF, 14 April 2000) 26

28 "[During 1999] There was an increase in the Government's forcible displacement of squatters from their illegal urban dwellings to make way for industrial and real estate development projects, which often led to disputes and human rights abuses" (U.S. DOS, Introduction, 25 February 2000) Displacement caused by natural disasters Over 700,000 persons displaced by natural disasters between September 1998 and April 2000) "A study by the Centre for Research on the Epidemiology of Disasters (CRED) showed that the Philippines is the world s most disaster-prone country. Disasters are a yearly occurrence throughout the country. The Philippines lies within the Pacific Ring of Fire where 80% of the world s earthquakes occur. Scattered over the islands are more than 20 active volcanoes. Annually, an estimated average of twenty typhoons devastate the country. Further disruption and internal displacement, often forced, are caused by environmental degradation and economic development policies." (DRA, January 2000) Over the last 2 years, almost 3 million persons have been affected by natural disasters, mainly floods. Out of these 3 million, more than 700,000 have been forced to leave their homes. Chronology of most recent disasters (September 1998-April 2000) Year Type of No. of deaths Houses No. of No. disaster damaged displaced persons affected 1998 (Sept-Dec) Typhoonfloods , , Floods , ,296 2,098, (March) Floods , ,885 Volcano Total , ,980,991 of Source: (OCHA, 7 March 2000, 8 February 2000, 11 August 2000, 26 February 2000, 17 December 1998, 24 September 1998) For more information on the history of Philippines natural disasters visit this site: ( 27

29 POPULATION PROFILE AND FIGURES General Selected Mindanao statistics Source: ADB, March 1998, Socio-Economic Profile of Cotabato, Provincial Planning and Development Office (PPDO), 1998; NSO, 1998" (Oxfam January 2001, pp. 4-5) Total number of IDPs Total number of IDPs (March 2001) 28

30 Between 200,000 and 220,000 IDPs as of March 2001 with 145,000 IDPs in evacuation centers and 80,000 living with friends and relatives. A total of 729,151 persons (DSWD figures) have been displaced by the fighting as of August 2000 DSWD June figures show approximately 600,000 displaced, whereas ICRC estimates number to be around 150,000 and PNRC around 175,000. As of end of May, DSWD estimates IDPs to be 474,856. As of mid-may, DSWD estimates IDPs to be 319,095. As of 8th May, DSWD-ARMM estimates IDPs to be 147,173. As of end of March, USCR estimate IDPs to be 122,000. According to the latest figures provided by the Department of Social Welfare and Development (DSWD), as of March 1, 2001, the number of persons still sheltered in evacuation centers was estimated at 144,953. This figure doesn't take into account the IDPs who are staying with friends and family outside the evacuation centers and who were estimated to be around 51,000 (CFSI 6 March 2001). The total number of IDPs can thus be estimated to range between 200,000 and 220,000. (DSWD 1 March 2000) (Office of the UN Resident Coordinator 5 October 2000) "Reports as of end December 2000 indicate that there are still around 200,000 people staying in evacuation centers. Though it is difficult to get reliable data of exact figures from government, our staff in Cotabato City have good reason to believe that there have been no significant decrease in numbers to date. That is, evacuees are still too afraid and insecure to return to their villages." (Oxfam 20 February 2001) "Available statistics reveal that the most affected areas and the displaced families/individuals are concentrated in various evacuation centers across Central Mindanao. While Maguindanao has a displaced population of 127,000, North Cotabato has 43,906 and Sultan Kudrat 858. Although estimates for Lanao del Norte and Lanao del Sur vary greatly due to continuous influx/outflow and lack of reliable data, some sources quote it to be around 170,000 displaced individuals." (Oxfam November 2000 p.1) The figures below illustrate the waves of displacement that took place since March 2000: As of August 2000 " As of August 1, 2000, the DSWD Central Office reports that 139,852 families (729,151 persons) have been affected by armed conflict in Mindanao, of which 128,523 (91.90%) families or 694,749 (95.28%) persons have been provided with support. Total cost of assistance has now amounted to P59,865, with 27.60% coming from LGUs, 30.98% coming from DSWD, and 41.42% coming from NGOs. Total number of evacuation centers is 395 of which 227 (57.47%) have been closed because families have either left to go home, transfer to other shelter centers or stay with their relatives in nearby areas. Damaged houses are now 5,840. Of this, 3609 (61.80%) are totally 29

31 destroyed/burned and 2231 (38.20%) are partially burned. To date, there are 708 civilian casualties, of which 354 were dead, 353 were injured and 1 reported missing since the beginning of the hostilities in Mindanao." (Office of the Resident Coordinator, 7 August 2000) As of June 21, 2000 "Following increased guerilla warfare in Central Mindanao, some 600,000 people have been internally displaced in over 150 camps and in host communities -it is possible that an even higher number of people have been affected by the warfare and are displaced in other parts of the country."(iasc, 21 June 2000) As of June 6, 2000 "A total of 113,706 families with 598,929 persons have been affected [by the conflict], of which 95,560 (80.04%) families or 518,817 (86.62%) persons have been served. Region XII with 72,484 families or 381,517 persons affected and 63,480 families or 336,439 persons served. ARMM with 37,794 families or 202,381 persons affected and 28,796 families and 167,883 persons served. Region XI with 2,020 families or 8,116 persons affected and 1,927 families and 7,631 persons served. Region IX with 1,408 families or 6,915 persons affected and 1,357 families or 6,864 persons served" (UN, 6 June 2000)" According the ICRC, who is operating in Mindanao, the above figure is largely overestimated. A total of 150,000 persons thought to be displaced in the evacuation centers. (ICRC, 6 June 2000). The Philippine National Red Cross comes up with a slightly similar figure of 175,695 displaced. (PNRC, 7 June 2000) Between January and June 2000,"(...) the ECDFC has recorded 14 cases of displacement involving some 82,012 families. Eleven of these cases were due to military activities and armed encounters between the government and rebel forces, two cases were due to resident's fear of being caught in a crossfire and a lone incident of displacement due to violent demolition of houses." (ECDFC, June 2000) As of the end of May 2000 "Vice President Gloria Macapagal Arroyo yesterday [24 May 2000] reported that 474,856 evacuees from the armed conflict in Mindanao are being served by the Department of Social Welfare and Development (DSWD), local government units and nongovernmental organizations in various evacuation centers." (Manila Bulletin, 25 May 2000) 30

32 As of mid-may 2000 "( ) Vice-President Gloria Macapagal-Arroyo ( ) said that the number of evacuees reached a high of 319,095 last week. As of yesterday [15 May 2000], there were still 229,264 people from 44,463 families taking shelter in evacuation centers in Central Mindanao, Western Mindanao, Southern Mindanao and the Autonomous Region in Muslim Mindanao, according to the Department of Social Welfare and Development (DSWD)" (Inquirer, 16 May 2000). As of May 8, 2000 According to figures presented by the DSWD of the ARMM, the number of evacuees as of the 8th May 2000 reached a high of 147,173. (DSWD-ARMM, 8 May 2000) [See total number of evacuation centers and geographical distribution of IDPs in Mindanao] As of the end of March 2000 Just before the fighting started to intensify at the end of April, the number of IDPs were estimated at 122,000 (UNHCR, 30 March 2000) mainly on the island of Mindanao with some displacement 1,623 persons- occurring also on the island of Mindoro due to fighting between the left insurgents of the NPA and the armed forces. (Inquirer, 23 February 2000) Number of IDPs over the last 3 years 200,000 still displaced at the end of ,820 still displaced at the end of ,000 displaced in "Data gathered by the Ecumenical Commission for Displaced Families and Communities (ECDFC) showed an alarming increase in the number of families displaced in The Research, Documentation and Publication Program (RDPP) of the ECDFC confirmed 34 incidents of displacement in 1999 that resulted in the evacuation of some 53,464 families or 320,784 individuals. Majority of these cases happened in Mindanao." (ECDFC, February 2000) "In 1999 [in Mindanao] alone, there have been 26 incidents of displacement or evacuation due to fighting, affecting some 148 towns, barangays and municipalities, dislocating 50,971 families from their homes and their livelihoods. ( ) while 235 families from the Visayas region were displaced by clashes between government troops and communist rebels." (PAHRA, April 2000) 31

33 "At the end of the year [1999], as many as 200,000 persons were estimated to be internally displaced in the Philippines, primarily as a result of armed conflict between the Philippine government and insurgent forces. Other causes included clan or tribal wars." (USCR, 2000) "At the end of the year [1998], approximately 20,740 families (estimated to be 122,820 persons) were internally displaced in the Philippines." (USCR, 1999) "Between January and December 1997, there were 550 recorded incidents of displacement, not counting those caused by natural disasters: 31,564 families or 189,000 people throughout the country were displaced by counterinsurgency operations or by the demolition of urban shanties for the construction of government development projects." (Medina-Salgado, 1998, pp ) Years Total number of IDPs ,000 persons ,820 persons ,000 persons Geographical distribution and disaggregated figures Summary of number of evacuees by geographical location (March 2001) According to the figures provided by the DSWD, a total number of 145,000 persons were still sheltered in 160 evacuation centers as of March 1, 2001 Over 80% of these IDPs are located in North Cotabato (44,201) and in Maguidanao (75,773) List of Existing Evacuation Centers as of March 1, 2001 Province/City/ Municipality Number of Existing Evacuation Centers Families Persons REGION XII 60 9,955 52,898 I. North Cotabato 49 8,247 44,201 a. Kabacan ,796 b. Matalan 9 1,473 9,618 c. Carmen 19 4,286 21,469 32

34 d. Aleosan ,217 e. Pikit 8 1,216 6,101 II. Marawi City ,668 III. Sultan Kudarat 4 1,022 6,029 a. Columbio 4 1,022 6,029 ARMM 95 16,350 89,603 I. Maguindanao 76 14,021 75,773 a. Parang 12 5,171 28,943 b. Matanog ,435 c. Sultan Kudarat ,827 d. Pagalungan 18 2,380 14,070 e. Barira ,185 f. Pagagawan ,170 g. Buluan 3 1,675 8,213 h. GSK Pendatun ,189 i. Datu Paglas ,286 j. South Upi ,330 k. North Upi ,790 l. Shariff Aguak ,335 II. Lanao Del Sur 19 2,329 13,830 a. Malabang ,246 b. Kapatagan c. Balabagan ,361 d. Calanugas ,428 e. Pualas ,811 REGION XI ,452 I. South Cotabato ,387 a. Polomolok ,655 b. T'boli II. Davao Oriental TOTAL , ,953 Source: Department of Social Welfare and Development (DSWD), Disaster Response Operations Monitoring and Information Center, 1 March 2001 Details on the displaced in the evacuation centers (January 2001) 33

35 "Of Mindanao s 17 million population, 64 % are Christians, 23 % Muslims and 18 % Lumads. Ethnic preponderance varies in former Moro provinces where Christians have migrated. In Maguindanao, Muslims (60%) predominate over Christians. In Cotabato, Christians (71%) predominate over Muslims (18%) and Lumads. Armed skirmishes, aerial bombing and artillery fires usually occur in interior villages where Muslims and Lumads predominate. The ethnic composition of the displaced population is more or less reflective of the overall ethnic composition of the areas directly affected by the armed conflict. However, more Muslim evacuees tend to go into and stay longer in evacuation centers than Christians. A social worker from the Pikit MSWDO observes that Muslims preponderate among the evacuees, reflecting the fact that % of the population in affected barangays is Muslim and they tend to stay longer. Most Christian evacuees, on the other hand, do not stay very long in the evacuation centers because they usually come from barangays closer to the locations where the hostilities are not so drawn-out. ( ) Lumads are also severely affected by the displacement resulting from the armed conflict. This is exemplified by the case of the evacuees in the Macatactac evacuation center (barangay Liliongan, Carmen municipality) comprising of around 300 families all belonging to the Aromanon Manobo tribe. These evacuees have been in the said evacuation center for one year already." (Oxfam January 2001, pp ) The following figures and graphs are taken from a Oxfam G-B survey among displaced families in Central Mindanao in November The target population was IDPs residing in evacuation centers in Oxfam program area: Maguindanao, North Cotabato and Sultan Kudrat provinces. When did the displaced migrate into the Evacuation Centers? 34

36 Time Displaced Moved to Evacutation Centers (in % Households) > 5 Months ago 3-5 Months ago </= 2 Months ago Religion of the Displaced Religion of the Displaced Families (in % Households) Muslim Christian Others (Lumads) Household size 35

37 Household Size (In % Households) > 15 Members 4 Household Size Members 6-10 Members </= 5 Members Per cent Households Demographic composition Demographic Composition (In % Population) Female </= 5 years 14 Age Group Male </= 5 years Female > 5 years Male > 5 years 36 (Oxfam November 2000, p. 9) Per cent Population Total number of evacuation centers and geographical distribution of IDPs in Mindanao (March - June 2000) "The total number of evacuation centers is 282 of which 110 (39.15%) have closed with 171 (60.85%) existing as of this date. Region XII with a total of 154, of which 72 closed and 82 existing ARMM with a total of 102, of which 20 closed and 82 existing 36

38 Region XI with a total of 21, of which 18 closed and 3 existing Region IX with a total of 4, all existing." (UN,6 June 2000) As of 6 June 2000, a total of 113,706 families with 598,929 persons have been affected by the conflict, in 4 regions of Mindanao, of which 95,560 (80.04%) families or 518,817 (86.62%) persons have been served in evacuation centers. Regions No. persons affected No. persons served Region XII 381, ,439 ARMM 202, ,883 Region XI 8,116 7,631 Region IX 6,915 1,357 Source: Disaster Response Operations Monitoring and Information Center of the DSWD, 2 June 2000, in UN, 6 June 2000 As of 8 March 2000, a total of 27,979 families or 147,173 persons were evacuated in the following provinces of Mindanao. Cotabato Province Kabacan Carmen Matalam Aleosan Pikit Midsayap Pigkawayan Lanao del Norte Province Bacolod Balo-I Tagoloan No. of families No. of persons Marawi City Cotabato City Sultan Kudarat Province Sen. Ninoy A Maguindanao Province 37

39 Matanog Buldon Barira Parang DOS Sultan Kudarat Pagalungan Datu Piang Kabuntalan Lanao del Sur Province Malabang Balabagan Kapatagan TOTAL Source: DSWD of the Autonomous Region of Muslim Mindanao (ARMM), May 8, 2000 See also "Disaster Operation Status Report, Maguindanao Province", DSWD, 9 May 2000 for the number of IDPs and their distribution in the Maguindanao Province as of May 9, Population of the 15 evacuation centers of Iligan City by place of origin (March 2000) Following the March 16 eruption of fighting in Kauswagan, Lanao del Norte, Iligan City assisted a total of 23,173 IDPs. "On March 16, 2000 armed conflict between government troops and MILF insurgents erupted in Kauswagan, Lanao del Norte, prompting this representation to immediately mobilize our Emergency Welfare staff. On that day, March 16, more than three hundred persons scampered from their homes and sought refuge in our city. Our Iligan City National High School (ICNHS) was the first evacuation center that was opened, housing 388 displaced individuals. Outside this number, the Living Word Ministries in Tibanga also sheltered 106 refugees. This initial figure steadily went up, the highest of which was on March 22 when we catered to 16,321 persons in 16 evacuation centers. For more than one month of operation, i.e., from March 16 to April 17, 2000, we were able to assist 23,173 displaced individuals representing 4,505 families. From this number, 2,086 persons were those who were accommodated in 9 refugee centers outside of the 9 government-operated centers. These 9 are churches, private residences and a warehouse." (Office of the City Social Welfare and Development, 20 April 2000) 38

40 Evacuation Center No. of families No. of Total IDPs by place of origin dependents San Roque Brgy. Hall Poblacion Marungao Brgy. Hinaplanon, Sityo Bayug Island East Central School (Tambo) Tibanga Brgy. Hall 7 inside 5 outside Abuno Elem. School 155 inside 178 outside Corpus Christi Parish Church Tomas Cabili Elem. School Ditucalan Elem. School 7 inside Ma. Cristina Auditorium (Fuentes) Sgt. Miguel Canoy Memorial School Lapayan, Kauswagan Lanao del Norte Brgy. Abuno Bry. Tagoloan Patag, Tagoloan, Kauswagan, Larapan, Panul-iran, Samburon, Abuno, Malindawag Kauswagan, Kawit, Lapayan, Tangub, Samburon, Rebocon, Linamon, Pindulunan 50 inside 65 outside Upper Taytay, Matampay Kauswagan Poblacion, Tacub, Kawit, Larapan, Napo, Samburon 529 2,228 2,7 Kauswagan, Linamon, Matungao, Buru-un, Ditucalan 57 Iligan City National High 827 3,194 4,0 School 21 Sta. Filomena Luinab Tibanga (Living World Church) Picop, Lanao del Norte 1,171 1, Southern Baptist Church (Pala-o) TOTAL 2,172 10,260 12,4 32 Kauswagan, Samburon, Napo, Tacub, Lapayan, Rebocon, Abaga, Balo-I, Tipanoy, Linamon, Abuno, Matungao (Source: Office of the City Social Welfare and Development, Iligan City, 22 March 2000) See also: "Iligan City's response to the IDP influx" 39

41 Return & resettlement figures Total number of persons/families who have returned (March 2001) According to the figures provided by the Department of Social Welfare and Development (DSWD), a total number of 592,610 persons have returned to their places of origin or to a new place "of their choice" as of March 1, Prior to their return, 328,497 IDPs (55%) were sheltered in evacuation centers, while 256,706 (45%) were staying with friends and family. If one relies on the official figure provided by the Government for the total number of persons displaced by the conflict as of October 2000 and which stood at 750,000 persons (U.S. DOS February 2001, 1.g), one could estimate that around 80% of the displaced have returned or have been resettled as of March

42 For further information on the Government's Return and Resettlement Program see : "Government relief & rehabilitation activities" (March 2001) Vulnerable groups MILF and NDF accused of recruiting children (January 2001) 41

43 "The war between rebel groups and the Philippine government over control of Mindanao, the southern region of this country, is dragging more and more children into the line of fire. ( ) According to Reuben C. Carranza an Assistant Secretary of National Defense (DND) lawyer, the NPA of the Communist Party of the Philippines and the MILF are major recruiters of children. In the war with the MILF, which lost thousands of combatants, the military has discovered so many young soldiers. The NPA, which is having difficulty in recruiting from far-flung communities, are taking in young girls and boys to fight its dirty war, Carranza said. In a report provided by Agence-France Presse (AFP), vice chief of staff General Victor Mayo claims 13 percent or 1,170 of the NPA's fighting force of 9,000 are children aged 12 to 16 years while a huge number of children are believed to be among MILF's ranks. MILF is believed to have a fighting force estimated at 15,000. But, MILF chairman Hashim Salamat, through his military spokesman Al Haji Murad, denied the AFP report saying "no one younger than 18 could join an MILF combat unit." However, the International Committee of the Red Cross (ICRC) gave credence to the report when it confirmed that indeed, the MILF, like the NPA have been and are still recruiting children to fight men's wars. ICRC Director Jean Luc-Blondel stated in a report called "Children and Armed Conflict" that the two groups intensified their recruitment of children since He said the children are aged 13 to 17 years old. The MILF recruited and trained as many as 35 pupils in every Muslim school in Maguindanao. Even MILF commanders interviewed by ICRC did admit that most of their combatants are very young. However, they maintain that the child soldiers are confined within the camps as reserve forces and undergo schooling." (Earth Times News Service 4 January 2001) 30,000 children displaced by armed conflict every year since 1988 (1998) 30,000 children affected by armed conflict since UNICEF says delivery of basic services to children in war-torn areas has been hampered by unstable peace and order conditions "More than 30,000 children have been displaced by armed conflicts in the country every year since About 4.5 million children in the Philippines had been affected by or exposed to armed violence for the past 20 years. This continues despite the on-going peace process between the government and rebel groups while more and more children are being affected. In a paper titled "Progress of the Philippines Toward the Year 2000 World Summit Goals for Children", the United Nations Children's Fund (UNICEF) said that the delivery of basic services to children in war-torn areas had been hampered by unstable peace and order conditions which make the communities inaccessible to service providers. 42

44 Children who are victims of armed conflicts suffer from psychological trauma and various illnesses. They are deprived of their right to education, health care and proper nutrition. Unicef also pointed out the growing number of children in conflict with the law, as well as child laborers and child prostitutes." (Health Alert, 26 December 1998) 43

45 PATTERNS OF DISPLACEMENT General IDPs seek refuge in public buildings, churches and mosques (June 2000) "In almost all the cases of displacements, families are forced to abandon their homes. They have no definite place to go. Usually, a large number are forced to stay in cramped evacuation centers (...) At times, during the opening of school, classes are indefinitely suspended due to the absence of alternative evacuation centers. Since evacuations happen abruptly, the affected families have no time to prepare. Often, they left their homes with only a few clothing and meager belongings that they could carry." (ECDFC, June 2000) Most of the Muslim residents of the affected municipalities of Lanao del Norte, Langilao have sought refuge in Marawi city (Newsboy's Newsroom, 2 April 2000) The displaced have been sheltered in schoolrooms, mosque, chapels and other public buildings (TFDP, 26 May 2000) 44

46 PHYSICAL SECURITY & FREEDOM OF MOVEMENT Personal security Army shells hit evacuees in Jolo (November 2000) "Seven persons were wounded, two of them critically, when five howitzer shells exploded at a school being used as an evacuation center in Patikul town Wednesday night. Evacuees at the Darayan Kantatang Elementary School said the shells started falling at around 8 p.m. At least two shells landed on a school building and two others landed near a flagpole. The school is providing temporary shelter to civilians fleeing clashes between soldiers and members of the Abu Sayyaf, an extremist rebel group, which is still holding two hostages. Col. Hilario Atendido, spokesperson for the military's Southern Command, said marines fighting a group of Abu Sayyaf gunmen in Patikul called for fire support, but some of the shells landed by mistake at the school, according to the Associated Press. Atendido said the Southern Command has ordered an investigation. Seriously wounded were Intan Anud, 26, and Norin Daali, 20." (PDI 3 November 2000) Displaced families fear being caught in the crossfire (1999) Displaced families fear for their lives (1999) "[During 1999] [p]eriodic clashes with the main remaining Islamic Insurgent Group, the Moro Islamic Liberation Front (MILF) continued to inflict hardship on civilians. Most of the fighting took place in western Mindanao provinces and was related to the control of territory, a central issue in the Government's peace talks with the MILF. Displaced families fear being caught in the crossfire or becoming casualties as a result of artillery exchange or bombings near their areas of residence." (U.S.DOS, 25 February 2000, section 1g) Freedom of movement Access to the evacuation centers rendered difficult by the military (May 2000) There have been complaints that the military are delaying the entry of evacuees in evacuation centers by harassing them. 45

47 It has been reported that the displaced were facing obstacles during their flight with the military setting up many roadblocks forcing people to get off their vehicles and other means of transportation six times from Pagalungan to Kabacan. Furthermore, the fare has increased from 7 to 22 pesos. (TFDP, 26 May 2000) "In evacuation centers in Parang,Maguindanao, the Marines put up a check-point in front of the gates of the schools and thoroughly checked the personal belongings of the evacuees for possible contents of weapons and ammunitions." (Human Rights Now, 9 May 2000) 46

48 SUBSISTENCE NEEDS (HEALTH NUTRITION AND SHELTER) General High number of children die in evacuation centers because of inadequate conditions (February 2001) " In October the AFP reported that in armed conflict with the MILF from May through July in central Mindanao, there were 477 deaths of noncombatants and a total of 922 casualties. Some of these persons were killed in crossfire between the forces or died fleeing the fighting. At least 242 persons, most of them children, died due to poor health conditions resulting from the military operations. Most died in 1 of the 436 evacuation centers, which were able to accommodate only slightly more than half the noncombatant refugees. Poor sanitation led to disease, and lack of food led to malnutrition. Water was insufficient and unsafe to drink. Many children developed diarrhea, dysentery, and respiratory ailments. Most of the children who died in the evacuation camps were under 2 years of age." (US DOS February 2001, 1.g.) Priorities regarding ODA assistance for humanitarian relief and rehabilitation (November 2000) "Government has formally transmitted to the donor agencies several priorities regarding ODA assistance for humanitarian relief and rehabilitation: Provision of fortified food for children in the evacuation centers Repair and construction of shelters including the development of resettlement sites, construction of toilets per shelter and the installation of water supply systems; and Funding assistance to meet the 417 million peso-financing gap of the Programme for Immediate Relief and Short-Term Rehabilitation. This includes projects being implemented by the Department of Social Welfare and Development, the Department of Health, the National Disaster Coordinating Council, the Technical Education Skills Development Authority, the National Housing Authority, the Department of Education, Culture and Sports, and the Armed Forces of the Philippines: Food. Food assistance for 36,039 evacuee families; supplementary/therapeutic feeding for all evacuation centers; food for work; Shelter. Provision of additional shelter in the evacuation centers; improvement of evacuation centers; repair of partially damaged shelters in the areas of origin; construction of core shelters; installation of toilets in the core shelters; establishment of resettlement sites; Medical Services and Facilities. Repair of health facilities and the provision of medicines and medical supplies and services; 47

49 Education. Construction of Makeshift classroom, provision of educational materials for supplemental education to school-age children in the evacuation centers; Repair and rehabilitation of damaged classrooms and other facilities; Sanitary/Waste Disposal Facilities. Provision of toilets in the evacuation centers, including sanitation-disinfection of toilets and latrines; provision of waste disposal facilities; construction and maintenance of drainage canals; Water System. Construction of deep wells and treatment of water sources in all evacuation centers; Roads, Bridges, Mosques and Government Facilities. Repair of roads and bridges in affected municipalities in Cotabato, Lanao del Norte and Sultan Kudarat; Repair of totally damaged mosques in the Lanao provinces; Repair of government facilities in Lanao del Norte, Sultan Kudarat and Maguindanao." (Office of the Resident Coordinator, 24 November 2000) Displaced are living under difficult conditions ( ) The overall conditions of the evacuation camps are difficult with regard to the social, cultural, medical and sanitation facilities. "Separated from their sources of subsistence and their socio-cultural domain, the victims are stalked by hunger and malnutrition in cramped evacuation centers where they also have to contend with inadequate sanitation facilities and medical supplies. Their social and cultural life is shattered. Their conditions in evacuation camps discourage them from engaging in their religious rituals and other social practices. The children who could no longer go to school are traumatized by their Diaspora. Psycho-emotional stress and depression are setting in, leading to the physical, mental and spiritual torment of individuals and their families." (TFDP, May 2000) "TRIPOD, a Mindanao-based organization reported more than 10,282 families currently displaced due to incessant armed conflict between government and rebel troops in the towns of Talayan, Datu Piang, Shariff Aguak, Matanog, Buldon and Barira in Mindanao. They have run out of rice and livestock for food and are beginning to suffer from hunger. They have no shelter and are continually exposed to the elements. Children and women have shown indications of high tension and psychological stress. No government or private agency is responding to their situation. Not even the local municipal authorities have the capacity to protect them from ongoing shelling and bombing." (PAHRA, April 1999) Health The top ten leading illnesses/diseases in evacuation centers (December 2000) 48

50 " Tabang Mindanaw together with Task Force Tulong conducted its third round of medical mission last October in Parang, Maguindanao. The medical mission team was composed of Dr. Hec Maniaul, Dr. Edong Vizmonte and Dr. RJ Sugay. and countless local volunteers. A total of 1,087 patients in fourteen (14) evacuation centers were served: 437 males whereas 650 females.. A total of 463 patients benefited from the dental services offered by TM. The top ten leading illnesses/diseases are: Upper Respiratory Tract Infection (315 patients), Pneumonia (180 patients), Acute Bronchitis (101 patients), Skin diseases such as allergies and scabies (52 patients), Pulmonary Tuberculosis (46 patients), Acute Peptic Disease (40 patients), Acute Gastroenteritis/Dehaydration (37 patients), Parasitism (34 patients), Wound Infection (28 patients) and Bronchial Asthma (22 patients). The fourteen evacuation centers visted by the medical mission team are: PNHS Main, Tent City, Central Elem. School, Mac-Alle Elem. School, Magsaysay Elem. School, PNHS Annex, Mahad Alisona, Making Elem. School, Miramar Elem. School, Dawah Center, Mahad Sagafah, Municipal Gym, Crisis Center and ND Gym." (TM December 2000) Poor health of IDPs in evacuation centers (November 2000) IDPs in need of psychological help. DOH has sent a team of psycholigical experts to meet the IDPs 'needs 36,663 children and adults in the evacuation centers are suffering from respiratory infections and diarrhea "The health condition of the displaced in some camps is notably poor. The unsanitary surroundings and congestion at the evacuation centers have caused a rise in common illnesses - upper respiratory tract infections (URTI), diarrhea and, conjuntivitis. While these problems have subsided following Oxfam s public health interventions, there are still areas of problems that need addressing. The DoH in Central Mindanao offers the following data about the health of the displaced. While the reliability of the data could be questioned, it would certainly offer a trend to their health status. And these health indicators restrict their representation to the evacuation centers only as they have been gathered there. In October 00, the Disease Surveillance Unit Disease Surveillance of the Evacuees, October 16, 2000, Department of Health/Philippines of the DoH reported a total of 3135 morbidity cases from Maguindanao (one of Oxfam areas) alone for the period 1 May to 10 September As noted in their report, the leading causes of morbidity were ARI (41%), Diarrhea (25%), Measles (25%), conjunctivitis (4%) and Pneumonia (2%). However, owing to ORI conducted in mid-july, Measles cases have gone down drastically. 49

51 Further, DOH has reported a total of 205 deaths from evacuation centers in Maguindanao and Lanao del Sur for May to September Half of these deaths were observed among children </= 2 years of age and the diseases claiming these deaths were mainly Diarrhea (5%), Measles (7.6%) and Pneumonia (32%). This nutrition survey observed scabies among 23 per cent of the displaced children which could imply unsanitary living conditions in some of the camps." (Oxfam November 2000, 16) "Wounded combatants and displaced civilians in the evacuation centers in Mindanao are not only plagued by the dismal lack of food, water and medicines but also by trauma and recurring nightmares. Dr. Carmencita Banatin, program manager of the Health Emergency Management Office of the Department of Health (DOH) said these people need not only medical attention but psychological debriefing as well. The DOH office in Manila has sent a team of psychosocial experts to the hospitals and 30 evacuation centers in North Cotabato and Lanao del Norte in Central Mindanao to augment the efforts of the region's experts in meeting the needs of wounded soldiers and displaced families. The "debriefers" draw out from the victims the details of their harrowing experiences in the raging war. The patients reportedly felt unburdened as they talked about the pain in their hearts and minds. They are also advised on how to cope with having lost a house, a farm, a limb or a loved one. The most common ailment plaguing those in the evacuation centers is respiratory infections. In Maguindanao alone, for instance, a total of 36,663 children and adults in an evacuation center were reported suffering from ailments such as respiratory infections and diarrhea. Banatin said sanitation and environment concerns, including water and toilet facilities in the evacuation centers were being addressed by the DOH. Chlorine is also being distributed in areas where water is not that clean. Meanwhile, in Maguindanao, 23 women were said to have suffered miscarriages in the province. Dr. Tahir Sulaik said the women bled profusely, some of them walking for four days to flee from the bombs. "(Health Alert, 20 May 2000) "The spread of disease has added to the woes of the refugees, with government officials saying about one in five of the people at the evacuation centers are suffering from respiratory illnesses, diarrhea and malaria." (Sydney Morning Herald, May 17, 2000) Mindanao is one of the areas most poorly served by public health facilities (1997) 30 per cent of the country's population has no access to health facilities. While the National Capital Region of the Philippines would be ranked 38 on the UNDP's Human Development Index, West Mindanao would be ranked

52 "During the 1980s, the Philippines spent comparatively less than other East Asian countries on health. In the 1990s, health spending has increased. But only one-quarter of the budget goes to the primary health care system, which is most heavily utilized by the poor. The upshot is that 30 per cent of the country's population 23 million people- have no access to health facilities. In areas such as the Cagayan valley and Southern Mindanao, where the incidence of poverty rises to over 40 per cent, less than half of the population has access to health facilities, exacerbating the vulnerability of poor communities. Regional differences in health provision reinforce the effects of poverty. The National Capital Region of the Philippines accounts for over two-thirds of the country's spending on health. Ranked on the UNDP's Human Development Index, the region would be in the high development category, ranked 38. West Mindanao, one of the areas most poorly served by public health facilities, would be ranked next to Zambia at 136, with a life expectancy ten years below the national average." (OXFAM, 1997) Nutrition Displacement has not had significant negative impact on the nutritional status of the displaced population (November 2000) Displacement has not had significant negative impact on the nutritional status of the displaced population as this population has the same prevalence as that of general population. "Oxfam Nutrition Survey observed the Global Acute Malnutrition (by WASTING) by weight/height <-2 Z-Score criteria at per cent in the sample population and the malnutrition ranging between 9 and 14 per cent for the displaced in general at 95 per cent Confidence Interval. And the Severe Acute Malnutrition by weight/height <-3 Z-Score criteria was noticed at 3.00 per cent in the sample population and the same ranging between 2 and 5 per cent for the general population at 95 per cent Confidence Interval. The GoP commissioned Fifth National Nutrition Survey 1998 observed WASTING among 9.9 per cent of the children in North Cotabato and 9.2 per cent of the children in Maguindanao provinces of Central Mindanao. Although the Oxfam observed malnutrition level is slightly higher than that established by the National Survey, both prevalence levels lie on a range of 9 to 14 per cent that is the Confidence Interval established for Oxfam sample population at 95 per cent. That means the findings of this and National survey support the interpretation that there is no significant difference in WASTING between the displaced population and the general population in Mindanao. And the displacement has not had significant negative impact on the nutritional status of the displaced population as this population has the same prevalence as that of general population. 51

53 But when you compare the Oxfam established prevalence against UNHCR/WFP Decision Framework for feeding programs (Annexure - 1), the population is observed to be living in the ALERT level meaning the initiation of Targeted Supplementary Feeding and Therapeutic Feeding Programs for the displaced. While UNHCR/WFP framework dictates the feeding programs, the Oxfam survey believes in the following ground-level details about the displaced population in Oxfam Program area and decides not to pursue the implementation of Feeding Programs. First, given that the displaced still have some levels of household reserves which they could spend on buying foods, it is highly unlikely that we will see a marked deterioration in the nutritional status of the displaced in the near future. And given the emergency nature of feeding program, they would not address the irreversible coping options (depletion in productive assets) which is where Oxfam believes to focus on with livelihood interventions. Second, since there is no marked difference in WASTING between the displaced and general population, the short-term feeding programs would fail to produce visibly significant levels of impact in the target population. And that the displaced have spread over a larger geographical area in Central Mindanao, these interventions would not prove to be cost-effective. Third, Government agencies like DSWD and OCD and, Church groups have been offering food assistance of and on. And ICRC is planning a general food distribution in about a month/ two and are currently engaged in identifying/registering the target families. This is believed to take care of the emergency food needs of the displaced while Oxfam prepares for livelihood interventions. With these details in the background, Oxfam highlights the importance of addressing the underlying household food and livelihood insecurities of the displaced rather than banking on the feeding programs. While the prevalence of malnutrition remains with in the acceptable range, the shifts in their food and livelihood pattern due to displacement, have demonstrated a significant negative impact on their present and future food securities. These, if left unaddressed, could lead to complete erosion of household assets and push these families into the state of DISTRESS where extreme hardships could be foreseen.( )" (Oxfam November 2000, pp. 1-2) "Department of Health officials and NGOs involved in health care report an overall improvement in health status amongst evacuees since June/July, though a recent nutritional survey of under-fives carried out by Accion Contra la Hambre (ACH) and the Philippine National Red Cross found rates of severe and moderate malnutrition of % and 10 15% respectively. OXFAM and ACH are planning to mount a supplementary feeding program and the Red Cross and Tabang Mindanao are between them planning to supply food rations to all evacuation centers. Immunization programs 52

54 are continuing, though health officials in ARMM have reported a lack of vaccines. " (Office of the Resident Coordinator, 5 October 2000) Nutritional status in Central Mindanao below national average (November 2000) In North Cotabato and Marawi city in Central Mindanao, stunting was four times higher than the national average, underweight was 14 per cent and, wasting 9.9 per cent. "The GoP committed a donor-supported five-year Plan of Action for Nutrition for period by designing interventions for micro-nutrient supplementation & food fortification, home and community food production, nutrition education and food assistance to reduce hunger and malnutrition. This plan has so far achieved only some of its targets owing to poor implementation and lack of capacities in the ARMM region. The Fifth National Nutrition Survey 1998 has established an acute malnutrition of 7.2 per cent, underweight 9.2 per cent and stunting 5.4 per cent using Filipino standards as compared to 5.8 per cent, 8.8 per cent and 5.5 per cent respectively, during a similar survey in If NCHS standards are applied to this survey, prevalence of underweight would push to 31 per cent and stunting to 32 per cent. The survey noted further that majority of the wasted children were < 1 year old. In North Cotabato and Marawi city in Central Mindanao, stunting was four times higher than the national average, underweight was 14 per cent and, wasting 9.9 per cent. In Maguindanao province, underweight and wasting prevailed at 10.5 per cent and 9.2 per cent respectively. The prevalence of Anemia among 6M to 5 year old was per cent in ARMM, while the same among lactating women in Central Mindanao was noted at 72 per cent, the highest in the country as per 1998 survey. Most mothers breast-feed their babies and mix bottle feeding with water + sugar during breast-feeding period. Prolonged breast-feeding, with out complementing with additional foods, was observed in older children. While feeding animal milk is not a practice for Filipino children as cows are not for milking, milk formulae have been seen in many tents and parents prioritize in sourcing money to buy them. Women have expressed difficulties in preparing suitable recipes for feeding young children due to lack of suitable ingredients, cooking utensils, space, firewood and unfamiliar environment. With these constraints, plain rice/rice porridge has been the main food for children and, oils and vegetables have not been accessible by these families. Knowledge and practices related to feeding children and caring them including breastfeeding, complementary feeding, hygiene and diarrhea management at home have been observed poor. On the other hand, DOH and DSWD do a routine growth-monitoring activity but is not serving its objectives of preventing and early detecting of malnutrition for lack of practical training, proper analysis and decision-making capacities to initiate timely and appropriate responses." (Oxfam November 2000, p.17) 53

55 Conflict has severely imbalanced the agriculture growth in Mindanao (November 2000) "Mindanao observes two crop-cycles a year (June to September and November to February) and is a large producer of a variety of crops. While it accounts for 30 per cent of the country s rice yield, it produces 64 per cent of national corn output, 90 per cent pineapple, 92 per cent cacao, 74 per cent banana, 69 per cent cassava, 59 per cent coconut and 100 per cent of rubber to the national output. About 40 per cent of the country s fishing industry is in Mindanao and the island s livestock industry is the second largest in the country. The on-going conflict has severely imbalanced the agriculture growth in the region. As per partial details available as of May 2000 from Mindanao Regional Agricultural Directorate, the damage so far caused to crops, livestock, fisheries and other farm products has been placed at 150 million pesos. The bulk of the damage has occurred in Maguindanao, Lanao del Sur and Sulu. Other affected areas are Sultan Kudrat, South Cotabato and North Cotabato. Agribusiness has suffered the most damage at 68 million pesos, fisheries 40 million, livestock 10.5 million and agricultural research 28 million. While the country s Agriculture Secretary expects the likelihood of food shortage if the hostilities continue, the Director of Agricultural Statistics foresees a decline in the growth of agricultural sector up to one per cent from the modest 2.69 per cent growth last year. Agriculture data indicate that the fighting in Mindanao has so far cost rice farmers 15,669 MT in lost harvest worth 26 million pesos and has affected 5,364 hectares of rice fields in Central Mindanao and ARMM. As the Director puts it, many farmers and their families have fled their areas and planting of next crops will have to wait until the situation normalizes, presaging a decline in the next harvest season. To aggravate their condition, the situation has forced farmers to sell their work animals to spend while in evacuation." (Oxfam November 2000, pp.15-16) 54

56 ACCESS TO EDUCATION General Around one in three children who enter primary school do not complete it (1997) Only 4 per cent of the girls who enroll in primary school end up graduating. Primary education is financed by a disguised system of taxation on poor people diminishing access to schools for their children and reinforcing their poverty. "In theory, the Philippines achieved universal primary education at the same time as Korea. In practice, around one in three children who enter primary school do not complete it. Research carried out for Oxfam by a Philippines non-government organization, the Freedom from Debt Coalition, graphically illustrates the discrepancy. In the urban municipality of Bocaue, around 85 per cent of all children enroll in primary school. However, of the girl children who enroll, only 4 per cent graduate. Illness and cost were cited as the main reasons. Once again, under-funding is part of the problem. Despite having a higher per capita income than Indonesia, the Philippines spends less per capita on education. What it does spend is heavily skewed towards higher level facilities. In the tertiary sector, where most students can afford to pay, private spending by households has declined from 26 per cent to 22 per cent of public spending since In the primary sector, the share of households in overall financing has almost tripled, from 12 per cent to 31 per cent. In effect, primary education is being financed by an increasingly regressive and heavily disguised system of taxation on poor people, diminishing access to schools for their children and reinforcing their poverty." (OXFAM, 1997) Fighting disrupt education for IDP children Schools destroyed by fighting or used as evacuation centers (January 2001) "A number of schools in the conflict zone had been temporarily closed as a result of the armed hostilities. In some cases, teachers from temporarily closed schools were transferred to nearby schools to augment the teaching force and accommodate additional needs especially of children from dislocated families. According to the Office of Civil Defense, the armed skirmishes from January to August 2000 had also caused PhP million worth of damages to homes, schools, places of worship and infrastructure. The actual figures may have been higher if all angles are 55

57 taken into account. A single attack on the village like Dalengaoen, like the 11 November MILF attack, would already create no less than PhP 1 million worth of damages for a poor farming village. According to a partial report from the Cotabato Division of the Department of Education, Culture and Sports (DECS), all classes in Carmen, Pikit and West Midsayap were intermittently suspended (one week at a time) during the 2000 school-year due to armed hostilities. Apart from the sporadic clashes, suspension of classes was also affected by physical damage to schools. In Carmen around 2,236 children were affected by the complete damage of 41 classrooms in School Year 2000 with damage estimated at PhP 6.04 million (DECS Cotabato, 2000). In Kabacan, 27 classrooms were completely destroyed this year affecting 1,838 children and with an estimated damage worth PhP 3.67 million (DECS Cotabato, 2000). Damages are caused either by direct hits during clashes or by unintended use. In Carmen, 73 % of damaged classrooms are due to increased usage as evacuation centers. Around 10 % of damages are caused by direct hits or because they are used by government soldiers as patrol base or camps. In Kabacan, of the 27 damaged classrooms, 10 were burned and the rest were used as evacuation centers. Partial data from the DECS (Cotabato Division) also reveal that 39 classrooms in the municipalities of Matalam, Mlang, Pikit and Aleosan were partially damaged affecting 1,838 children. Damage is estimated at PhP 3.47 million. In M lang (4 classrooms), partial damage was directly caused by armed clashes. In Aleosan, 15 classrooms were affected by the transfer of school sites to safer grounds. In Matalam and Pikit, the affected classrooms are being used as evacuation centers. In Dalengaoen, the primary school has been closed since June Teachers assigned here have been transferred to the neighboring elementary school of Takepan (next barangay). However, only a few of the Dalengaoen pupils have been able to enroll at the Takepan school. The primary school grounds at Macatactac (Liliongan, Carmen) are being used as an evacuation center. Classes are still being held there. However, the classes have to contend with the distractions caused by the presence of evacuees. The school building is also evidently dilapidated and lacks chairs. In Manarapan (Carmen), five water pumps used by the residents for their water needs have been stolen by unidentified parties during the MILF-AFP skirmishes in the area. To date, these have not been replaced yet, although this is being worked out with the assistance of Oxfam GB. The barangay hall was badly damaged in the latest round of MILF-AFP hostilities in the area. The local mosque was likewise damaged, although Army engineers have repaired the damage." (Oxfam January 2001, pp ) "As millions of Filipino children return to school, thousands of children of war in the affected villages and towns in ARMM are denied their education because a number of 56

58 schools are being used as military barracks or have been damaged by war. Before the war, the town of Parang had 14,000 elementary and high school students. But as the school season opened, at least 17,000 individuals are occupying 11 schools as temporary shelters, the DSWD-ARMM disclosed." (Balay 8 December 2000) Children unable to attend school in June (May 2000) Important decrease in school enrolment due to the impact of war. IDP children not admitted in schools without the proper ID documents With the loss of family income and livelihood, many IDP children will be unable to attend school in June. Summer classes in at least four provinces in Mindanao have been suspended due to the fighting. "The Department of Education Culture and Sports has reported a decrease in the number of enrollees in the primary and secondary schools in the city compared to last year s records. Dr. Tamano Pandapatan, city schools superintendent, said that when classes opened Monday, the total number of students enrolled in the elementary schools in the entire city division of public schools dropped 13,000 from last year s 54,809 enrollees. For the high schools, Pandapatan said that the biggest school, Iligan City National High School, reported that only 8,013 enrolled this year compared to last year s 10,192. The drop in the enrollment in both levels could be the effect of the situation in Mindanao with the ongoing war between the government and the Moro Islamic Liberation Front and the economic problems of the city, according to Councilor Henry Dy.(...)" (Newsboy's Newsroom, 11 June 2000) "Another problem facing the evacuees and their children is the opening of classes this June. Macaraya said that the evacuees children cannot go to school in Marawi because apart from the five elementary and high schools converted into evacuation centers, no school would admit them. 'The children were not able to bring their documents with them when they fled their homes,' she said. Macaraya said that the only way for these kids to go back to school is for the war to stop." (Newsboy's Newsroom, 4 June 2000) "Lack of food and potable water will result in the outbreak of diseases among children and elderly. These children as well as teenagers will be unable to go to school this June with the loss of family income and livelihood." (TFDP, 26 May) "Reports reaching the Department of Education, Culture, and Sport (DECS) and Commission on Higher Education (CHED) Central Offices in Pasig City, also said that summer classes in at least four provinces in Mindanao have been suspended due to the 57

59 shooting and bombing incidents as well as hostage taking incidents." (Manila Bulletin, 5 May 2000) 58

60 ISSUES OF SELF-RELIANCE AND PUBLIC PARTICIPATION Opportunities for employement and other economic activities Food and livelihood strategies severely damaged during/after displacement "The survey highlights that the food and livelihood strategies that underlay the displaced families before displacement have been severely damaged/threatened during/after their displacement. Although the Oxfam observed malnutrition level is slightly higher than that established by the National Survey, both prevalence levels lie on a range of 9 to 14 per cent that is the Confidence Interval established for Oxfam sample population at 95 per cent. That means the findings of this and National survey support the interpretation that there is no significant difference in WASTING between the displaced population and the general population in Mindanao. And the displacement has not had significant negative impact on the nutritional status of the displaced population as this population has the same prevalence as that of general population. While the displaced population is currently living in an acceptable range of malnutrition (not much variation was noticed between this survey and National Survey 1998 by WASTING index), their health indicators are exhibiting adverse signals due to overcrowdedness and poor hygiene/ sanitation practices in some evacuation centers. While ARI has been exacerbated by the over-crowdedness in some of the evacuation centers, Scabies has been the consequence of hygiene and sanitation deficiencies. As regards the severity in damage caused to household food and livelihood securities of the displaced, 82 per cent of the families who depended on their own land to meet their food requirements before displacement now don t have access to their lands. Although 16 per cent occasionally gather left-over produce from their lands, they do this because they have nothing to eat but to take all the all risk to their lives in the middle of frequently fighting in the places of origin between government troops and MILF. 59 per cent families that used their cash crops (coconut, banana etc) to meet their food needs before displacement now don t have access to these crops for the same reason. Livestock (buffaloes, cattle, goats, ducks and poultry) have been lost to 49 per cent of the families. And 31 per cent families who depended on fishing for their foods now don t have fishing tools and access to rivers and ponds. These assets have been lost either during displacement/fighting. The loss of these livelihood sources have prompted these families to resort to a basket of coping options that are threatening their present/future livelihood securities. As the survey notes: Reversible/food insecurity coping mechanisms 59

61 44 per cent families have sold off their non-productive assets-vehicles, jewelry etc. Migration to nearby towns and villages has set in for 46 per cent families. 97 per cent families have reduced on the size and frequency of meals/food intake. Another 98 per cent families have changed their dietary pattern by now buying cheaper and bulky (lessnutritious) foods Irreversible/crisis management mechanisms 58 per cent families have withdrawn their children from schools as they could not continue education due to displacement and financial constraints. 50 per cent families have sold their productive assets agricultural tools, animals etc. 22 per cent families were found having taken loans/credit on interest to buy foods. Another 21 per cent families have sold their farmland, house and land rights to meet their foods In all practicality, the displaced families have already crossed their FOOD INSECURITY stage and are now living in CRISIS stage (Refer Framework Stages in Food Insecurity and Coping Mechanisms in Annexure - 2). The valid indicator to this finding is the series of reversible and irreversible coping strategies being adopted by displaced families and some of these implying a threat to their future food security. If the prevailing situation is allowed to continue, it is nearly certain that the evacuees would exhaust all their left-over household resources and enter the DISTRESS stage where extreme hardships and consequences could be foreseen. This worsening situation will continue with ever increasing negative impact on people s food and livelihood securities in the evacuation centers especially stretching their coping strategies to complete exhaustion." (Oxfam November 2000, pp ) 60

62 DOCUMENTATION NEEDS AND CITIZENSHIP General Government will not introduce special registration for Muslims (2000) "[President Estrada] ordered the Department of Interior and Local government units, including those in Metro Manila, from making any move 'to restrict the free movement and commerce of Muslims in our towns and cities, to include ID cards or additional registration requirements only for Muslims. He said that 'every Filipino, Christian or Muslim, is the equal in law and in fact of every other Filipino and this government will uphold and protect that most basic of democratic tenets." (Manila Bulletin, 30 May 2000) 61

63 PROPERTY ISSUES General Over 6,000 houses damaged during the fighting in Mindanao (January 2001) Cases of loss of property were brought to the Commission on Human Rights by the evacuees. As of the 6th June, 648 houses were damaged, most of them totally were destroyed. The armed skirmishes in 2000 displaced an estimated half a million persons, destroyed 6,229 houses and damages another 2,115 (DSWD)." (Oxfam January 2001, p. 2) "Burning of houses and divestment of belongings (clothing, furnitures, kitchen ustensils, farm animals, etc.) usually happened after the evacuees left their homes. Some cases were brought to the Commission on Human Rights by the evacuees with the help of some non-governmental organizations. But only few cases were resolved and most victims remained unindemnified and rehabilitated. (ECDFC, June 2000) "Damaged houses are now 648. Of this 554 (84.49%) are totally destroyed/burned and 94 (14.40%) are partially damaged. Region XII with 548 totally and 84 partially damaged houses, respectively. ARMM with 6 totally and 10 partially damaged" (UN, 6 June 2000) 466 houses destroyed by the fighting in Cotabato (November 2000) "An undated summary report from the Cotabato PSWDO indicates a total of 466 houses completely burned down and another 586 partially damaged in the municipalities of Pikit, Carmen, Aleosan and Midsayap in the course of the armed conflict. The January- November 2000 data of the Justice and Peace Program of the Diocese of Kidapawan shows an even bigger number of burnt houses at 740, the biggest concentration occurring in the municipalities of Carmen (242 houses) and Kabacan (298 houses). The 11-month time series shows two peaks: February in Carmen and August in Kabacan. 62

64 Summary of Damages and Casualties, January-November 2000, Cotabato Source: JP-Kidapawan # of Deaths # of Persons Wounded # of Houses Burned January February March April May June July August September October November Month (Oxfam January 2001, p. 24) Pending House Bill to alleviate plight of displaced families (1999) "A pending House Bill to provide reasonable compensation and benefits for the loss of lives, injuries and damages to property suffered by non-combatants individuals in the course of the military or police operations, has been files in Congress and hopefully will help alleviate the plight of displaced families especially in the rural areas." (PAHRA, April 1999) 63

65 PATTERNS OF RETURN AND RESETTLEMENT General Little return due to fear of fighting (January 2001) " Dislocations and population movements are influenced by the intensity of conflict. Data indicates that the intensity of displacements correspond to the intensity of the conflict. Unfortunately, returns to places of residence do not correspond to the lowering of the intensity of conflict. Due to uncertainty and the fear of recurrence, evacuees do not return to their homes even during the lull of fighting. Fr. Roberto Layson, the Roman Catholic parish priest of Pikit, estimated a total of 41,000 evacuees hosted by Pikit alone at the height of the recent escalation of hostilities between the government and the MILF. This number includes evacuees from the neighbouring municipalities of Carmen and Aleosan of Cotabato province, as well as from Matanog (Maguindanao province). The exodus from the rural communities began as early as 28 April, a few days before the outbreak of fighting along the Cotabato-Davao national highway on 2 May. It was only about two months later that people began returning to their communities particularly after government troops had overrun Camp Rajahmuda in Pikit, the second biggest MILF camp after Camp Abubakar. Other evacuees returned only after four months in the evacuation centres. Still there are about a thousand families (roughly 5,000 individuals) remaining in the evacuation centres as of the first week of December The Pikit MSWDO reports that in June 2000, residents in 70 % (29 out of 42) barangays had been displaced from their homes by the armed conflict. The 1997 Minimum Basic Needs Survey reveals shows there are an estimated 10,181 families in these 29 barangays. As of the first week of December 2000, the MSWDO indicated that there are still three barangays where residents remain in evacuation centres, refusing to go back to their communities due to continuing fear for their safety. These are Kabasalan, Talitay, and Bualan with a total of 856 families. In Barangay Dalengaoen, residents have evacuated three times this year. From 7-10 February, 2000, 3,627 families (10,550 persons) moved to 13 evacuation centers in Carmen (Cotabato) at a time when a total of 227 houses in 12 villages were burned as a result of skirmishes between government troops and rebels. Summary of Documentation, Justice and Peace Program, Diocese of Kidapawan. Barangay Manarapan, a village along the Cotabato-Bukidnon highway, has been host to three waves of evacuees this year. During the same month, 440 families (1,884 persons) from 9 villages of Kabacan (Cotabato) moved to safer places. 64

66 A total of 740 houses were burned in Cotabato during skirmishes or as a peripheral effect of the skirmishes from January to November Ibid., A summary by the Cotabato PSWDO (for May to October 2000) shows that displacements occurred in 61 % (11 out of the 17 municipalities and one city) of the territory of the province. These include Pikit, Carmen, Aleosan, Midsayap, Kabacan, Matalam, Alamada, Pigacawayan, Magpet, Banisilan, and Kidapawan City (with evacuees coming from Carmen and Pikit). The number of evacuee families reported ranged from a high of 12,249 in 15 May to a low of 7,256 in 31 August. The number of persons in the evacuation centres range from a high of 66,606 in 15 May to a low of 35,030 in 31 August. Indications are that the PSWDO figures understate the number of evacuees, as they consider only those evacuees actually staying at the evacuation centres disregarding those who have sought shelter in the homes of relatives or other people. On a broader scale, an update from the Presidential Executive Task Force for Relief and Rehabilitation of Central Mindanao shows that out of the 213 evacuation centers 116 had been closed, leaving 97 still in operation. As of 13 October 2000, covering Maguindanao and Lanao del Sur of the ARMM and Lanao del Norte, Cotabato Province and Sultan Kudarat in Region XII. A total of 14,165 families (77,993 persons) were still in the remaining 97 evacuation centres as of 11 October Another 3,274 evacuee families (17,984 persons) taking shelter outside of the evacuation centres had not yet returned to their homes." (Oxfam January 2001, pp ) Most IDPs return without Government support (June 2000) "There are communities that returned to their place of origin in coordination with local government and the military who guarantee the peace and order situation of the place. But most communities or families returned on their own accord or resettled elsewhere without the intervention of the government." (ECDFC, June 2000) IDPs return only under safe conditions (June 2000) 21 Maranao families return to their village nearly 3 months after being displaced. Local government of Lanao del Norte offers free transportation and food to encourage returns THE municipality of Kauswagan welcomed last Tuesday [13 June] 21 Muslim families who returned to their homes after evacuating the war-torn area in the middle of March. The evacuees, who earlier sought refuge in relatives homes in the cities of Marawi and Iligan, availed of the Balik Barangay program of the local government. Kauswagan Mayor Jack Maruhom said they have long campaigned for evacuees to come home but had difficulty locating them since the Maranaos preferred to stay with relatives instead of evacuating centers. 65

67 Although the conflict in the poblacion area has subsided long ago, the evacuees finally decided to come home only after learning that there were no more armed men sighted in the hinterland barangays of Delabayan and Paiton. Earlier, Lanao del Norte Gov. Imelda Quibranza Dimaporo launched the Balik Probinsya program by extending free transportation services and food assistance to evacuees so they would go home. Insp. Renato Salazar, Kauswagan police chief, said that the evacuees were escorted by the military from their evacuation places to their respective barangays to ensure their safety. (Newsboy's Newsroom, 18 June 2000) Government plans for return and resettlement Government will construct halfway houses to serve as temporary shelter to Mindanao residents until their own homes are rebuilt. (October 2000) " In Central Mindanao, Government has focused its efforts in constructing shelter for 6,434 evacuees whose houses were totally destroyed (approximately 30% of families displaced by the conflict). For October, the government has targeted: 727 houses for Cotabato province 404 houses for Lanao del Sur 598 houses for Lanao del Norte 35 houses for Sultan Kudarat 1098 houses for Maguindanao The government s strategy also includes the construction of temporary halfway evacuation centers that are better provisioned than the current evacuation sites. These halfway sites are located nearer the communities of origin, thus encouraging families to use these sites as a base from which they can proceed to their farms on a more regular basis and as a platform for early return. The sites can be converted to school buildings, health clinics and other services after the evacuees have returned to their original homes. Government intends 36 of these 'halfway' sites in October: 10 in Cotabato Province 6 in Lanao del Sur 11 in Lanao del Norte 1 in Sultan Kudarat 8 in Maguindanao The Presidential Task Force for Relief and Rehabilitation in Central Mindanao continues to promote organized closure of existing evacuation centers through measures that will encourage early return while upgrading services and basic infrastructure of evacuation centers for evacuees who are not ready to go back to their communities. Almost half of 66

68 the 6,298 houses foreseen are nearing completion, the majority in 'relocation' sites (alternative sites identified by the Local Government Units). ( ) Effect of Continuing Conflict. Even as many evacuees have resettled, either in their home places or alternative sites, periodic skirmishes between the AFP and MILF are preventing evacuees from returning home and in some cases provoked renewed displacements (e.g. in the Carmen area). In a number of areas this situation is also limiting access to agricultural areas, and hence livelihood of evacuees. " (Office of the Resident Coordinator, 5 October 2000) "The Mindanao Coordinating Council (MCC) expressed optimism yesterday that it will be able to build some 2,000 homes for evacuees who had been displaced by the protracted armed conflict between government troops and Moro rebels. Vice President Gloria Macapagal Arroyo, co-chairman of MCC, said the construction of these 2,000 houses for evacuees willl be completed before the end of this month, and an additional 4,000 more houses by year-end. She said the construction of houses of evacuees is part of the short-term rehabilitation efforts being conducted in certain conflict-hit areas in Mindanao which MCC targets to finish within the next three months. "Our time frame for the short-run rehabilitation of Mindanao's conflict-hit areas is three months. We hope to build 2,000 houses before month's end. That is the target of Presidential Task Force on Relief and Rehabilitation," she said." (MB 12 September 2000) "Vice President Gloria Macapagal Arroyo announced here yesterday [10 August 2000] that the government will construct halfway houses that will serve as temporary shelter to Mindanao residents until their own homes are rebuilt. The vice president, who has been named by President Estrada as his co-chairman in the Mindanao Coordinating Council (MCC), said the halfway houses will be built by the Armed Forces of the Philippines (AFP) Engineering Brigade in areas near the evacuation camps." (MB 11 August 2000) NGO plans for retun and resettlement The Tabang Mindanaw Integrated Return and Rehabilitation Program (IRRP) for the Civilian War Victims in Mindanao (September 2000) PROGRAM SUMMARY This Integrated Return and Rehabilitation Program (IRRP) is an urgent and ultimate response to the need for a systematic return of the evacuees to their villages and assist 67

69 them in rebuilding their lives, homes, and communities. It is hoped that through this IRRP the tri-people of Mindanao will deepen their respect for one another, as well as develop commitment towards building communities of peace, justice, and understanding. The focus of the IRRP, therefore, is to provide a venue for the tri-people of Mindanao who have became victims of war to rebuild and rediscover their communities as Sanctuaries of Peace using the framework of a comprehensive and integrated human development program. OBJECTIVE To facilitate the safe return of the tri-people evacuees to their villages and assist them in the rehabilitation of their lives and communities. It is hoped that through this IRRP, the tri-people of Mindanao (Christians, Muslims, and Lumads) with the assistance from the Local Government Units (LGUs), barangay officials, the Church, the Ustadz and Imams, the military, and armed rebel groups (MILF), will deepen their respect for one another, as well as develop commitment towards the establishment and respect for these Sanctuaries of Peace. PROGRAM DESCRIPTION A. Strategic Approach: Convergence Community-based LGU and Church Partnership Collaboration and Partnership with various NGOs and GOs B. Roles and Responsibilities - The partner Communities with the assistance of the LGU s, NGOs and the Church are responsible in the implementation and monitoring of the return and rehabilitation process. - The tri-people will develop a mechanism for the protection of their sanctuaries of peace. - The Military Command as well as the MILF will provide guarantees for the safe return and preservation of the Sanctuaries of Peace. SUSTAINABILITY The tri-people together with the technical staff from TM, Local Church, LGUs, NGOs and the trained local people shall develop a scheme that help ensure the sustainability and continuity of the Program. Participation of the local leaders, LGUs, Church, the MILF group and the military will be encouraged to help uphold the desire of the inhabitants to create a Sanctuary for Peace. COMPONENTS 68

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