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Resolving Post-Disaster Displacement: Insights from the Philippines After Typhoon Haiyan (Yolanda)

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Resolving Post-Disaster Displacement: Insights from the Philippines After Typhoon Haiyan (Yolanda) Resolving Post-Disaster Displacement: Insights from the Philippines after Typhoon Haiyan (Yolanda) International Organization for Migration (IOM) The Brookings Institution is a private non-profit organization. Its mission is to conduct high-quality, independent research and, based on that research, to provide innovative, practical recommendations for policymakers and the public. The conclusions and recommendations of any Brookings publication are solely those of its author(s) and do not reflect the views of the Institution, its management, or its other scholars. Brookings recognizes that the value it provides to any supporter is in its absolute commitment to quality, independence, and impact. Activities supported by its donors reflect this commitment and the analysis and recommendations are not determined by any donation. 1775 Massachusetts Avenue N.W., Washington, D.C. 20036 United States www.brookings.edu Established in 1951, IOM is the leading inter-governmental organization in the field of migration and works closely with governmental, intergovernmental and non-governmental partners. With 155 member states, a further 11 states holding observer status and offices in over 100 countries, IOM is dedicated to promoting humane and orderly migration for the benefit of all. It does so by providing services and advice to governments and migrants. IOM works to help ensure the orderly and humane management of migration, to promote international cooperation on migration issues, to assist in the search for practical solutions to migration problems and to provide humanitarian assistance to migrants in need, including refugees and internally displaced people. 17 Route des Morillons CH-1211 Geneva 19 Switzerland www.iom.int Copyright © 2015 The Brookings Institution Copyright © 2015 International Organization for Migration (IOM) Cover photo: Conrad Navidad © 2014 IOM The views expressed in this report are those of the authors, and do not necessarily reflect those of the Brookings Institution or the International Organization for Migration. Resolving Post-Disaster Displacement: Insights from the Philippines after Typhoon Haiyan (Yolanda) By: Angela Sherwood, Megan Bradley, Lorenza Rossi, Rufa Guiam and Bradley Mellicker International Organization for Migration (IOM) Authors Angela Sherwood, PhD Candidate, Dickson Poon School of Law, King’s College London Megan Bradley, Non-Resident Fellow, Brookings Institution / Assistant Professor, Political Science and International Development Studies, McGill University Lorenza Rossi, Data Analyst, IOM Iraq Rufa Guiam, Professor III, Department of Sociology, College of Social Sciences and Humanities, Mindanao State University – General Santos City, the Philippines Bradley Mellicker, Esq., former Head of Office, Tacloban and Samar, IOM the Philippines Contributors Rica Abueva, Lorrielyn Capacite, Eula Ganir, Mathilde Gueho, Mark Maulit, Ana Palao, Kyaw Phyo Wai, Diana Ragub, Rizalino B. Delos Santos Acknowledgements The research team would like to thank the many Filipino IDPs and other Haiyan-affected community members who shared their time, experiences and opinions. The team is also grateful to the national and local government officials, diplomats, donors and staff of international organizations and NGOs who contributed their perspectives to this study. Thanks are due to the IOM Philippines Information Management Unit and Publications Unit staff, as well as to all those who assisted with fieldwork, logistics, GIS and data processing. The team would also like to thank the following individuals for their support to different aspects of the research process: Cleto Abad, Mohammed Abdiker, Rex Alamban, Shaqir Arapi, Vlatko Avramovski, Melissa Borlaza, Marco Boasso, Sylvie Breme-Gaillard, Carolina Brill, Randy Calipara, Steve Chekmar, Roxanne Cheng, Ingrid Daba, Luca Dall’Oglio, Leah Denman, Nathaniel Ecleo, Elizabeth Ferris, Elisa Glazer, Cecilia Gomez, Monica Goracci, Valerie Hagger, Louis Hoffman, Maggie Humenay, Lee Kanthoul, Bernard Kerblatt, Ginette Kidd, Frank Laczko, Mark Lewis, Laura Lungarotti, Kent Madarcos, Flynn Joy Magno, Christy Marfil, Susanne Melde, Maria Moita, Marizelle Navarro, Conrado Navidad, Mike Pelobello, Manuel Pereira, Ryan Edward Perez, Joselito Pintuyan, Patrice Quesada, Salvacion Quilaquil, Jerby Santo, Bruce Scoffield, Marilou Sese, Frances Marie Solinap, Miguel Somook Jr., Romina Sta. Clara, Sathasivam Sumanthiran, Consuelo Tangara, Kularb Tidarat, Mary Grace Torralba, Carmelo Torres, Pete Toto, Mayana Umar and Peter van der Auweraert. The research team expresses its appreciation to SAS for its input and support in the analysis of quantitative data. The research team expresses its appreciation to the Government of Canada for supporting this initiative. Resolving Post-Disaster Displacement: Insights from the Philippines after Typhoon Haiyan (Yolanda) Table of Contents List of Tables .................................................................................................................................iii List of Map and Graphs ....................................................................................................................iii List of Acronyms ................................................................................................................................v Executive Summary ...........................................................................................................................1 Introduction ..................................................................................................................................7 Summary of Key Findings ..........................................................................................................8 Methodology ...........................................................................................................................10 Frameworks for Supporting Durable Solutions to Disaster-induced Displacement .........................15 IASC Framework on Durable Solutions for Internally Displaced Persons ................................15 National and Local Frameworks ..............................................................................................16 The Post-Haiyan Displacement Crisis: Background and Evolution of Responses ...............................21 Overview of Displacement Patterns ........................................................................................21 National and Local Responses Related to Durable Solutions ..................................................22 International Responses ..........................................................................................................24 Supporting Durable Solutions to Displacement in Haiyan-affected Areas ......................................27 Overarching Challenges ...........................................................................................................27 The Durable Solutions Process ................................................................................................28 Informed and Voluntary Choice ......................................................................................30 The Right to Assistance in Support of Durable Solutions ................................................31 Law and Practice: Striving for Balanced Approaches to Durable Solutions .....................33 Promoting Long-term Safety and Security ..............................................................................34 Enjoyment of an Adequate Standard of Living ........................................................................40 Access to Livelihoods and Employment ..................................................................................46 Restoration of Housing, Land and Property ............................................................................51 Durable Solutions and Housing, Land and Property: An Overview of Needs, Assistance and Protection Issues ....................................................................................51 Housing Rights and Settlement Options ........................................................................52 Housing, Land and Property Issues Related to Return ....................................................53 Housing, Land and Property Issues Related to Relocations ............................................54 Access to Documentation........................................................................................................55 Other IASC Framework Criteria: Family Reunification, Participation in Public Affairs and Access to Remedies ..........................................................................................................57 Family Reunification ........................................................................................................57 Participation in Public Affairs ..........................................................................................57 Access to Effective Remedies ..........................................................................................58 Advancing Durable Solutions after Disasters: Reflections ...............................................................59 Gender Dimensions of Post-disaster Durable Solutions ..........................................................59 Participation and Leadership Related to Durable Solutions: Differential Experiences ....61 Gender, Protection and Safety Concerns ........................................................................61 Gender, Livelihoods and
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